[Congressional Record (Bound Edition), Volume 153 (2007), Part 9]
[Senate]
[Pages 13260-13287]
[From the U.S. Government Publishing Office, www.gpo.gov]




    COMPREHENSIVE IMMIGRATION REFORM ACT OF 2007--MOTION TO PROCEED

  The ACTING PRESIDENT pro tempore. Under the previous order, the 
Senate will resume consideration of the motion to proceed to S. 1348, 
which the clerk will report.
  The legislative clerk read as follows:

       Motion to proceed to Calendar No. 144, a bill (S. 1348) to 
     provide for comprehensive immigration reform, and for other 
     purposes.

  The ACTING PRESIDENT pro tempore. Under the previous order, the 
Senator from Alabama, Mr. Sessions, is recognized for up to 3 hours.
  Mr. SESSIONS. Mr. President, there are more than 3 hours' worth of 
discussion that needs to go on concerning this bill, that is for 
certain.
  I appreciate Senator Reid's comments, but I express some concerns 
about what I understood him to say a few moments ago. He is the 
Democratic leader. He does have the power to call up legislation in the 
end and to try to set the agenda but not the total power to do so. I 
think I heard him say he would like to see this bill--he wants to see 
debate and amendments this week.
  I have to say there is no way this bill can be voted on and amended 
only this week. We have had legislation such as WRDA that we took up 
for 2 weeks, a re-authorization of the water resources bill. When we 
worked on the bankruptcy reform bill, which mainly was a reworking of 
the existing bankruptcy law, with some changes, we debated that for 
months. So there is no way we can or should produce this bill after 1 
week of debate.
  If that is so, the American people can know we have had a railroad 
job for sure. Hopefully, that does not reflect Senator Reid's firm and 
final opinion on the question of the schedule for this week.
  Also, I wish to say I am not pleased, and I oppose the motion to 
proceed to last year's bill.
  When we talked about the comprehensive immigration bill last year, I 
pointed out 17 loopholes in the bill in a series of speeches, and 
people began to take to heart a number of points I made, frankly. The 
negotiators of the new bill have come back with a bill that has some of 
the intention to or at least purports to deal with some of the concerns 
I had last year.
  I have to say I was pleased to hear that we were considering a point 
system, such as Canada's, that we were considering a temporary worker 
program. I was told by the people who met and drafted this legislation, 
that the guest worker program would be for temporary workers and it 
could work to serve our economy.
  I am afraid, that if you read the legislation, that the needed 
immigration reform is not so. That is not what we have in either case 
and to any significant degree; it is a bit of window-dressing of some 
movements in those areas and some fairly significant steps, frankly, 
that we need to hold on to and need to be a part of a fundamental 
reform of immigration. There are some positive steps, but they are just 
not effective enough, as I will discuss later.
  I reject the idea that a movement to a system such as Canada's or 
Australia's that is based on merit and skills for immigration is 
somehow, as I think Senator Reid said, an attack on the family. I am 
offended by that statement. A person who wants to come to this country, 
has to ask to be admitted into the United States of America, and say 
that: I have not been a criminal, I meet the standards for admission, 
and I want to be a productive citizen. Then after we give that person a 
green card, that person can become a citizen and have the right to 
demand that his or her parents be allowed to come here, the aging 
parents who will be fundamentally supported by the American taxpayers, 
demand that his or her brothers and sisters and their spouses and 
children be allowed to come. So how is this an attack on your family if 
we say: You can come, you can be a citizen, but right up front, you 
cannot bring your parents, adult children, and siblings, you don't have 
any special rights to do so, but they can apply if

[[Page 13261]]

they qualify, just like everybody else, based on their own merit. But 
why should the fact that we give one person a glorious thing--
citizenship in the United States--entitle them to bring maybe tens of 
other people? It just does not make sense. I reject the argument that 
moving to a merit based system is an attack on family. Canada does not 
believe it. Sure, you can bring your nuclear family--spouse and 
children. I am not talking about stopping nuclear family from being 
together. I am talking about a reform of the current system that 
focuses on the extended family.
  This chart shows three approaches to immigration by nations similar 
to the United States. Fifty-eight percent of the people who come to our 
country are family based--58 percent are family based, and only 22 
percent are skill based. We have a policy that gives 16-percent of 
green cards for humanitarian reasons and those are unconnected to the 
skills they might bring. And 4-percent of green cards are given through 
a visa lottery. I may talk about that issue later. This bill wisely 
eliminates the lottery.
  Look at Canada. They had 60 percent merit based immigrants; that is, 
they asked those people: Are you educated? Do you have language skills? 
Can you speak in English or French? What kind of skills do you have 
that Canada needs? What prospects do you have as an immigrant to be 
successful in Canada, to be a productive citizen who will contribute to 
Canada, make Canada a stronger and better nation? That is what Canada 
does. Australia does the same. They have 62 percent skill, merit based 
immigration. I reject the idea that it is some sort of an attack on the 
family to do that.
  Senator Reid and others have said that this bill which will be 
introduced--it has not yet been introduced--is a good starting point. 
That makes me a bit nervous, I have to say, because the bill can be 
moved through perhaps this week with some real strong-arm tactics, 
which would be a very sad thing, but perhaps it could be. The House of 
Representatives does not have the free period of debate that the Senate 
does. The House leadership, Speaker Pelosi, could bring this bill up 
and hammer it through in a matter of days even and then it goes to a 
conference committee. The conference committee will be picked by and 
will be dominated by and absolutely controlled by the appointees of 
Senator Reid and Speaker Pelosi. They can alter the bill in any fashion 
they wish. So it is a good starting point, they say. Well, what might 
happen in conference?
  The American people have a right to be nervous. They have a right to 
be cynical about how we in Congress have handled immigration. We have 
consistently protested that we want a lawful system of immigration. 
People have run for President for the last 25 years or last 50 years 
saying they believed in a lawful system of immigration, but, in fact, 
they don't do anything about it. They never take the steps necessary to 
make the system lawful, to make it principled, and to do what it 
absolutely must do as a matter of national priority; that is, the bill 
should serve our national interests. Think about that simple concept. 
Any legislation we pass should be a product that serves our national 
interest, not special interests.
  One of the things that has worried me about my colleagues who have 
been having these secret meetings is that there is some talk about them 
having stakeholders, I believe Senator Kennedy said that. I think 
Secretary Gutierrez from the White House, Secretary of Commerce, said 
interest groups. I don't know whom they pretend to be meeting with and 
deciding these issues, but I will tell you who was not in those 
meetings, and that was the American people. Not only were we not there, 
we were excluded from those meetings, and we had not been informed how 
those decisions were reached or what is in the bill--until perhaps 
Saturday morning.
  This started brewing last week when Majority Leader Reid said he was 
going to bring up last year's bill. He gave the people who were working 
on this legislation a limited amount of time. He told them they had to 
come up with a bill by Wednesday. So they fiddled around and worked 
hard and compromised and rushed and rushed and rushed and came forward 
with a bill on Thursday. They announced they had reached a grand 
compromise and that all Americans could take a deep breath and relax 
because they had met and fixed the problem of immigration, a 
comprehensive fix, that we could all just relax and not worry about it 
anymore because they fixed this problem.
  We were told--and I was promised directly--that the bill would be 
ready Thursday. Senator Kennedy, at the press conference, said it would 
be ready Thursday, and it wasn't ready Thursday. They said it would be 
ready Friday. It wasn't ready Friday. It came in early Saturday 
morning, 2 a.m. Staff had been working all night, bleary-eyed, trying 
to put this grand compromise together in some sort of fashion. Small 
print, it is 326 pages, I believe. That is about this thick, all these 
pages together. That is about what the stack looks like at 326 pages.
  One of the few times since I have been in the Senate, perhaps the 
only time I can recall, we have had a major piece of legislation not 
written, not reviewed by the committee that is here to review language 
and write it in bill format. They didn't do it. So all we have seen is 
a bill written on a computer by somebody who works for the executive 
branch, as I understand it. It is about 300-something pages. Why didn't 
they ask the Legislative Research Service to write up a good bill? They 
can't do it. How can you take 326 pages and put it in proper 
legislative language overnight when the thing comes in at 2 a.m. 
Saturday morning? And truly, if it is put in proper bill language--and 
I hope it will be at some point because the group that works on the 
language really does a good job of professionally making sure it is 
written in a proper way, and they find a lot of errors just doing that. 
If the bill is re-formatted by legislative counsel, it will turn out 
not to be 326 pages but closer to 1,000 pages of bill language, about 
two times or more this thickness.
  Are we going to pass that bill this week? How many amendments will we 
be able to take up this week? People need to talk about, first and 
foremost, the fundamental principles and policies embodied in good 
immigration reform. We should also talk about what is going to be 
coming up in the legislation.
  As I understand the plan, the majority leader intends to file cloture 
this afternoon on last year's bill, and then he purports that he--and 
that uses up a lot of time, see. If we started with a new bill, we 
would have to wait until it is printed, then bring it up, then move 
cloture on the motion to proceed, cloture on final passage, and other 
procedural matters. They have been moving on a bill they said they 
never intended to bring up anyway, last year's fatally flawed bill that 
should never ever become law. That is what we are going to do this 
afternoon. We are going to move to cloture on that bill.
  Then we are told this entirely new bill is going to be substituted as 
an amendment. So the first amendment will be a substitute to wipe out 
the old bill, last year's bill, and get an accelerated start without 
the opportunities for debate on a new bill. Presumably that is how we 
can ram this bill through in record time. I predicted that is what the 
plan was last week several times, and it does look as if that is where 
we are going.
  So we have a flawed process, I suggest, in a lot of ways, and it 
should cause the American people to be troubled and Members of the 
Senate to be troubled.
  I don't deny that the people who attempted to work on the 
legislation, draft this new bill, are good people, good Senators, but 
they put themselves in a situation, based on what I see of their 
results, in which the document does not have the strength, the 
effectiveness needed to be a solution for our immigration problems 
today. I wish it was different. I wish I could say it is something we 
could be excited about and should support.
  It is all right that they met. I have affectionately referred to them 
as

[[Page 13262]]

``masters of the universe.'' They would go into these secret meetings, 
and they would get together and talk to special interest groups and 
would listen to everybody, I guess, but the American people and put 
together a bill. But that is what they have done. The bill has some 
good parts and some troubling parts.
  So we are at a point in our history when the time is right for 
comprehensive immigration reform. The Senate, however, in my view, is 
not ready for debate today. The plan, as we are moving today, is 
unwise. It has been produced as a result of undue pressure and 
artificial timelines, which we have no responsibility or need to meet, 
on the Members who are meeting in this group involved in the 
negotiations. So the majority leader says: OK, you guys go off and 
meet, but you only have so many days or we won't bring up this bill, we 
will bring up the old bill, and we will do these things. They felt this 
pressure, and they produced.
  When I first heard about the plan on Friday, May 4, I stated that the 
Democratic leadership in the Senate acts as if this is just another 
piece of everyday legislation, but it is not. The immigration bill is 
one of the most important bills to come through the Senate in the 
decade I have been here.
  Staff drafting of the bill was not finished until Saturday morning, 
and legislative counsel has not yet converted the bill into the proper 
format. Even today, we have no assurances that the product they 
produced that had across the top of it ``Draft: For Discussion Purposes 
Only,'' are the final agreements in the bill and will be the document 
actually introduced, presumably tonight.
  At last week's press conference, two individuals remarked, and with 
great pride and enthusiasm, they were taught as children that is--what 
they had been doing--how a bill becomes law. One said:

       I have never been more proud to be a member of the Congress 
     and a member of the Senate. This is what my ninth grade 
     teacher told me government was all about, and I finally got 
     to experience it a bit. We have been in rooms together, early 
     in the morning and late at night.

  Hopefully, they weren't smoke-filled rooms. They used to be smoke-
filled rooms.

       Going line by line trying to figure out what started to be 
     how to deal with illegal immigration and it wound up being 
     what it means to be an American.

  Well, that is good. Actually, Secretary Chertoff said:

       This is pretty much what I was taught in grade school about 
     the way the process works; not that everybody gets what they 
     want, but everybody works together to achieve the best 
     results for the most people.

  Well, I want to share a few things about how a bill should become law 
and what we were taught in grade school about it. Last Tuesday, I 
agreed to move forward. We have a cloture vote today. We were told we 
would have a bill by Wednesday or Thursday. We were not given that. So 
we have moved forward and the bill is being rushed forward at this 
point. I remain concerned that what I heard Senator Reid say earlier, 
that he hoped to debate and amend the bill this week, indicates, I am 
afraid, that he intends to see it passed this week.
  How does a bill normally become law? A bill normally becomes law, if 
it is a bill of importance, when it is filed in the Senate and referred 
to the proper committee. To a degree, that was done last year, although 
there was a tremendous effort last year to rush that bill through to 
completion. Many of the tactics utilized this year are very similar to 
the tactics utilized last year.
  Let us talk about what happened last year. The bill was introduced--
McCain-Kennedy--and it went through the Judiciary Committee. It was 
referred to the Judiciary Committee. Senator Specter, I believe, had 
his own bill as a working document, but it wasn't long in committee 
negotiations before the Kennedy-McCain bill was substituted for it. 
Then the majority leader, Bill Frist, gave them a deadline: You have to 
finish this bill, as I recall it, by next Monday. If you don't bring up 
the bill out of the committee next Monday, I am going to offer on the 
floor of the Senate a tough law enforcement bill that will focus on 
border security. This was supposed to be an incentive for the committee 
to act. Apparently, it worked, because a bill passed out of committee, 
worse by far than the bill Senator Specter had introduced, and here it 
was on the floor and hardly had been written. Nobody had seen what was 
in it. Yet they were bringing it up the next morning, Tuesday morning, 
and we were on the floor in debate.
  Senator Reid, then the Democratic leader, pushed to have no 
amendments and have the bill voted on that week. It became a big 
brouhaha. Senator Kyl, Senator Cornyn, myself, and others had 
amendments we wanted to talk about. So we pushed back and complained 
and complained. Finally, then Majority Leader Frist said, let's pull 
the bill down. We are not going to bring it up until we have an 
agreement to have a full debate and an opportunity to offer amendments. 
And that is what happened. It was brought back up and we spent 2 or 
more weeks on it.
  I point out, however, the legislation which was on the floor was in 
the Judiciary Committee and, even though rushed out, it passed out of 
the Judiciary Committee and it had several weeks of debate on the 
floor. That was that fatally flawed bill from last year, the bill we 
are now talking about going to but will be substituted by an entirely 
new piece of legislation which Senators have not had an opportunity to 
see, except from Saturday morning, if they were here, and most Senators 
have been at home this weekend.
  So that is what is going to be brought up. It has not gone through 
the committee process, as classically a piece of legislation should, 
and it is not known to the Members of this body what is in this bill of 
perhaps a thousand pages, and we are hearing they might want to move to 
it this week. That is a matter that is breathtaking in its scope. We 
should not do that.
  This is how the Heritage Foundation describes the process on its Web 
site. The Heritage Foundation is one of our Nation's most august and 
respected institutions that deals with public policy. They have been 
engaged in major issues for several decades. They say this on their Web 
site:

       Working behind closed doors for months, a handful of 
     Democrat and Republican staffers, along with a few Senators 
     and principals from the administration, have been drafting a 
     ``comprehensive immigration reform package.'' Until Saturday 
     morning, the legislation was unavailable to any other Senator 
     or staff, let alone the media, policy analysts, or the 
     general public. This legislation would be the most 
     significant reform of immigration policy in 40 years, 
     affecting not only our national security and homeland defense 
     but the fiscal, economic, and social future of the United 
     States for several generations. For the sake of open 
     deliberation and public education, the Heritage Foundation--
     which got a copy of the bill somehow--is making this 
     legislation in draft form publicly available to encourage 
     widespread debate and discussion.

  Well, thank goodness they did make it public, but who knew they had 
it on their Web site? I don't know, maybe it was Sunday they did so, 
but it is not an opportunity for the American people to know what is 
involved. The Heritage Web site goes on to say:

       The document made available here, although marked ``Draft: 
     For Discussion Purposes Only,'' is being relied upon by 
     Senators and staff as the final language to be debated 
     beginning Monday, May 21st, with the expectation of a vote on 
     final passage without congressional hearings, committee 
     markup, fiscal analysis--and we will talk about that in a 
     little bit, that means how much it costs--expert testimony, 
     or public comment before the end of the week.

  As Mr. Hugh Hewitt wrote yesterday, in an on-line article entitled 
``Summary of the Fine Print'':

       I have spent a lot of my weekend reading the draft bill, as 
     requested by both John Kyl and Tony Snowe. There are so many 
     problems with this bill that it should not be introduced in 
     the Senate absent a period of open hearings on it and the 
     solicitation of expert opinion from various analysts across 
     the ideological spectrum. Even if it were somehow to 
     improbably make its way to the President's desk, if it does 
     so before these problems are aired and confronted, the 
     Congress would be inviting a monumental distrust of the 
     institution.

  In other words, a monumental distrust of the Congress and the Senate. 
He goes on to say:

       There is simply too much here to say ``trust us and move 
     on.'' The jam-down of

[[Page 13263]]

     such a far-reaching measure, drafted in secret and very 
     difficult for laymen, much less lawyers to read, is 
     fundamentally inconsistent with how we govern ourselves.

  Not what we were taught in grade school, I assure you, and I couldn't 
agree more. This is not how the process is supposed to work. We should 
not be asked to trust our colleagues and vote to put a bill on the 
floor when we do not know that the bill text is even finalized, that 
the bill has not been drafted by legislative counsel, the bill has not 
been introduced or even given a bill number, the committee process was 
skipped and not followed, a Congressional Budget Office score may not 
have been requested.
  What is that, a Congressional Budget Office score? Before a piece of 
legislation is passed, you are supposed to have a score, which is how 
much it costs. How much will the bill cost? How much will it impact our 
budget and our deficit if we pass the legislation? How basic is that? 
Congress shouldn't be passing bills if we don't know what they cost. 
Last week, they haven't even asked for a CBO score, although we had one 
from last year that said the bill was exceedingly costly in the first 
10 years and much more costly in the years outside of that.
  I am going to talk a little bit about what Heritage Foundation says 
about a score, and it will take your breath away when we discuss that. 
It is almost something you hate to discuss, but it is something we have 
to discuss because this is supposed to be a serious institution.
  One reason, of course, they haven't requested a score last week is 
you have to send the bill language to the Congressional Budget Office. 
Well, they don't even have the language, I guess, yet. It is still 
being called draft language, and it will be over 800 pages in the 
proper format. How would you score how much a bill like that will cost? 
How long do you think it would take? So there is some sort of problem 
here.
  The majority leader is saying we are to spend 1 week on this bill, 
and we don't have a score, we don't have an idea of how much it is 
going to cost from the official institution, the Congressional Budget 
Office, that is charged with doing those things? Not good policy, in my 
view.
  In 1914, former Supreme Court Justice Louis Brandeis wrote:

       Sunlight is said to be the best of disinfectants, electric 
     light the most efficient policeman.

  So I want to trust my colleagues. I do trust them. But I have to 
verify, because this bill is very complicated. It should be introduced 
in the proper way, as a new bill. It is very different from last year's 
bill in a number of areas. It should have been introduced as a new 
piece of legislation. It should have been referred to the Committee on 
the Judiciary, the primary committee of responsibility, and we should 
have had hearings and debate on it. We should have called policy 
experts from Harvard and the University of Chicago, as we did a little 
bit last time, at my insistence, to find out what it means to our 
economy, to the working people of America. Are they going to have their 
wages crushed down because of a flood of low-wage workers, which is 
what those experts told us last year would occur? That is what they 
told us.
  That is what should have happened. We are not there. Maybe these 
Members of the Senate who have been meeting think they got it right and 
the bill is ready to come to the floor, but there are 85 other Senators 
here who have no idea what is in it. There is no way they could. For 
many, today is the first day they are back in DC after the new bill 
text has been made available for them to read. This bill needs some 
time to be disinfected by the light of day before it is ready for this 
floor and before we should be voting on it. That is fundamental, 
because it is so important.
  We have small bills, and bills that come before us that we have dealt 
with that are legitimate to bring up on fairly close notice. But a bill 
of this importance, one of the longest piece of legislation, possibly 
the greatest number of pages of any legislative bill since I have been 
in the Senate, is not something that ought to be popped through here, 
plopped down as an amendment to the bill, substituting out an entire 
bill and then going forward to final passage. I don't like that and I 
don't think we should do it. It is not the right thing to do, and it is 
not fair to the American public.
  The American public cares about this issue. They know more about this 
issue, oftentimes, than the politicians themselves. The American 
people, for the last 40 years, have had the right instincts. They want 
a lawful and fair immigration system. They do not want to end all 
immigration. They know we are a nation of immigrants. They believe in 
immigration. But they want a system that works, that does not pull down 
the wages of working Americans, that furthers our economy, does not 
enhance the welfare state and is lawful--is consistent with our 
principle of law. They want the law enforced.
  It is the politicians who have failed them consistently. The 
politicians, similar to last year, seem to be on the move. Their move 
is we don't want this bill on our floor long. The longer it stays here 
the more the people will get upset, the more they are going to find out 
about it, the angrier they will get with us. So we do not want them to 
know what is in it. We will bring this new bill up, we will plop it 
down, we will vote it out this week, and get it off our plate. Maybe 
they would not know. Maybe they would not care.
  But it is too important for that. We are beyond that. The American 
people do care. They are engaged. We might as well have a public and 
open debate about it and discuss these hard choices--and there are some 
tough choices to be made. We know that.
  It would have been better if this group had conducted their meetings 
in public, had open meetings and everybody discussed it for several 
months. They might have made the American people feel better about the 
system.
  When I first heard the White House PowerPoint presentation, this was 
a presentation made by Secretaries Chertoff and Gutierrez, members of 
the President's Cabinet. They had a PowerPoint presentation. It leaked 
to the press at some point. They presented it to certain Senators. I 
was invited to participate. I believed we had made some big strides 
from last year. It did, in fact, indicate a movement to a Canadian-type 
point system. They did assert they had created a temporary worker 
program that was actually temporary. Last year's temporary worker 
program was exactly the opposite of what they said it was. It was not 
temporary at all. The big print in the bill last year was ``temporary 
guest worker.'' Do you know what those workers were and how it would 
actually be carried out? A person could come to the United States as a 
temporary guest worker and, when you got to the fine print, they could 
come with their family, they could stay for 3 years, they could reup 
for another 3 years, another 3 years and another 3 years and they could 
apply for citizenship--or apply for a green card, permanent resident 
status in the United States the first year they were here.
  That was not a temporary guest worker program. It was a joke, a sham, 
an attempt to mislead the American people. Forgive me if I am a little 
bit cautious this time about reading the fine print.
  We were told we would have a better temporary worker program this 
year. Let me discuss some of the concerns I have about this 
legislation, as we understand it today, and how it actually meets with 
the public presentation of the principles and outlines and framework, 
as stated in the White House PowerPoint.
  It has been my hope that negotiations would produce a bill that 
followed the principles laid out in the 23 White House PowerPoint 
presentation. That was released in March. Those were much closer, those 
principles, to the framework of a bill that I said last year should be 
in any legislation. I stated I thought the framework from the 
PowerPoint could produce a bipartisan piece of legislation that could 
become law and could even become law this year. But I stated clearly I 
intend on reading the fine print.
  I have not had time to read all the fine print, but I have had time 
enough to know I will have to oppose the bill

[[Page 13264]]

in its current form. The question Members should ask themselves is 
this: If we invoke cloture today on last year's fatally flawed bill, 
this old bill, will the new bill the leader will file as a substitute 
amendment fulfill the promises laid out in the White House plan? Let's 
look at the four principles and see.
  Principle No. 1 is an enforcement trigger. Among the first 
principles, the PowerPoint was to ``secure the U.S. borders'' and ``not 
repeat the 1986 failure.'' Before any new immigration programs or green 
card adjustment could begin, the White House PowerPoint stated 
``enforcement triggers'' would have to be met.
  Several items were listed under the trigger: 18,300 Border Patrol 
agents; so many miles of fencing; the end of catch and release; and the 
initial implementation of a workplace verification system. That is the 
system at the workplace that ends the job magnet so the businesspeople 
will stop hiring people illegally because they will have to produce a 
work card, an identification card, that is very difficult to forge. 
That is something I think could be very effective.
  But I didn't think this list was going to be exhaustive, the things 
they had on their agenda as a trigger would be the only things in the 
trigger, that they would be the only things needed to ensure that we 
``secure U.S. borders'' and make sure we did ``not repeat the 1986 
failure.''
  Does the new bill fulfill the principle No. 1? Will the enforcement 
trigger guarantee we are not repeating past mistakes? No, it falls 
short. It will not ensure that the same promises of enforcement made in 
1986 do not meet the same fate.
  First, the trigger only applies to the guest worker program. All 
other amnesty programs will begin immediately--the Z visa probationary 
status begins 24 hours after the Department of Homeland Security begins 
accepting applications. If the trigger is not met, it is unclear that 
status will ever expire.
  Second, the trigger only requires enforcement benchmarks we are 
already planning on meeting. It requires nothing new, and it leaves out 
many very important enforcement items. Let me tell you about the debate 
on the trigger. It was a very important debate. Senator Isakson offered 
it. It was something I had offered in committee. He worked on it. I 
offered it on the floor of the Senate. The trigger basically said 
nobody gets amnesty until we fix this system.
  The reason that was important was because, in 1986, when that big 
amnesty occurred, people said: OK, we are giving you amnesty. American 
people, we will not have amnesty again. We are going to fix the border. 
We are going to have a law enforced at the border. But of course it 
never happened. Three million people were given amnesty in 1986, they 
were given that on the promise we would have enforcement in the future, 
and today we have 12 million people here illegally and that enforcement 
never occurred. So the American people are cynical on this point. I am 
cynical on this point. I know how this institution works. The concept 
in the trigger was we would insist on the critical components of the 
enforcement mechanism being in place before any kind of legalization or 
amnesty occur.
  That is that. That is why it was important. It was a very important 
part. We have been told: Don't worry, we have a trigger in the bill.
  Let me tell you some of the things that are not in it. The US-VISIT 
exit system is not included as a requirement of the trigger. In 1996, 
11 years ago, Congress required the administration--it was the Clinton 
administration then--to set up a system that recorded the exit and 
entry of persons across the border. I mean, people go to work, they put 
their cards in the machine. You go to the bank, you take out money by 
sticking a card in the machine. It is not difficult to have an exit/
entry system at the border if you make up your mind to do so.
  We later gave ourselves more time to finish the exit portion because 
the exit portion was not completed. We moved the date of the exit 
portion from US-VISIT to the end of 2005. The exit portion of US-VISIT 
is essential to ensure that future guest workers or new-parent visa 
recipients or new-family visa recipients do not overstay.
  It is one thing to be recorded when you come in. But if you come in 
for a 30-day visa or you come in for a 1-year work permit, how do we 
know you left? This is fundamental, to know when the person leaves. 
Anybody who suggests this is beyond the capability of the United States 
of America technologically to accomplish, I think is blowing smoke. Of 
course, we have the capability of doing this if we desire to do so.
  It is not a part of the trigger, so I am not sure how valuable it is 
to have an entry check as part of the US-VISIT but not have the exit 
check. It is important, I would say, if you intend, when we pass this 
bill, to actually see it enforced and actually have people go home when 
the bill says they are supposed to go home. But if you do not put it 
in, then we have a problem.
  A separate section of the bill, section 130, only requires the 
Department of Homeland Security to submit to Congress a schedule for 
developing and deploying the exit component. There is no requirement 
that it be finished as part of the trigger. But I would say the trigger 
has been very much weakened. They promised a trigger. They knew what 
the debate was all about and why it was important. The masters of the 
universe, I affectionately call them, who wrote this thing, said they 
put a trigger in. But it is not an effective trigger.
  Operational control of the border is not required by the trigger. 
Current law requires that by April 26, 2008, 18 months after the Secure 
Fence Act was passed and was signed into law, that:

       The Secretary of Homeland Security shall take all actions 
     the Secretary determines necessary and appropriate to achieve 
     and maintain operational control over the entire 
     international land and maritime borders of the United States.

  Eighty Senators voted on that last year right before the elections, 
that this should be the standard that we would have, operational 
control over the border.
  Only 18,000 Border Patrol agents have to be deployed by the 
Department of Homeland Security under this deal. This is 300 agents 
less than the PowerPoint listed. The Intelligence Reform and Terrorism 
Prevention Act of 2004 requires 2,000 new Border Patrol agents to be 
hired each year through 2010, so we are already on track now to have 
that many people in the next 2 or 3 years. We have already funded the 
hiring of over 14,000 Border Patrol agents, and DHS is already planning 
on hiring the 18,000 with upcoming appropriations.
  This trigger didn't require anything new, nothing other than what we 
had done.
  The 370 miles of fencing, which was part of the bill offered last 
year, and 200 miles of vehicle barriers, are yet to be built. So they 
are being built. But that was a key part of the trigger.
  The trigger said we must end the catch and release, and some progress 
has been made to end this situation that happened when individuals 
coming across the boarder are apprehended. If they are from Mexico, it 
would be pretty easy to transport them back to Mexico, or Canada if it 
were on the Canadian border, but what about somebody caught on the 
border who is from Brazil? What about someone caught on the border who 
is from China? Or Indonesia? Or India? Or Africa? What about that? What 
happens to them?
  What we were doing was apprehending people such as that, taking them 
before some administrative officer, releasing them on bail and asking 
them to come back for a hearing to be deported. Of course, 95 percent, 
the numbers show, were not showing up.
  We have ended some of that already. Secretary Chertoff has made some 
progress in ending that situation, where those other than Mexicans are 
actually moved out rather quickly, except in a few instances.
  The catch-and-release provision of the bill directly conflicts with 
the bill sponsors' claim that the catch-and-release will be eliminated 
forever as part of the trigger. That section, found on

[[Page 13265]]

page 10, lines 3 through 23, allows persons ``other than Mexicans'' 
caught at the border to be released on $5,000 bond. Being released on a 
bond is being released. The practice of catch-and-release of the 
persons ``other than Mexicans'' isn't ended by this bill; it just now 
calls for bond. People pay $5,000 to have some coyote bring them 
across, and they bring another $5,000 bond and they can post the bond 
and be released immediately into the country.
  Another question that came up as part of that debate was to have 
sufficient prison capacity to detain people while they are being 
deported instead of releasing them on bail. You cannot end the catch-
and-release if there is no place to hold persons apprehended.
  The Senate has appropriated money for 9,000 new beds already, 
bringing us to a total of 27,500 beds. This is the money already 
appropriated. It is the current level of funding. So nothing new is 
added by this trigger that would strengthen our capacity.
  Later in the bill, a separate section, 137, requires Homeland 
Security to conduct or acquire 20,000 additional beds. That should be 
in the trigger. How do we know it will ever be done? Well, we want to 
authorize or require 20,000 more beds to be built because we have 
decided we need those. But let me tell you, American people, just 
because we authorize something like this does not mean in any sense 
that somewhere down the line a future Congress will put up the money to 
pay for it. You cannot build bed spaces without money. What is not 
appropriated will not be built.
  Additionally, 27,500 beds is far less than the 43,000 detention beds 
required under current law to be in use by the end of 2007, as required 
by the Intelligence Reform and Terrorism Prevention Act. So we are 
below where we need to be. That should be in part of the trigger if we 
are to guarantee we are moving in that direction.
  Finally, there is no guarantee that the additional enforcement items 
in title I, Border Enforcement, and title II, Interior Enforcement, 
will ever be funded. There is no guarantee that the additional 
enforcement items will be funded. The phrase ``subject to the 
availability of appropriations'' is used 18 times in the first two 
titles. The phrase ``authorized to be appropriated'' is used 20 times 
in Titles I and II of the bill.
  We all know this does not require any money to be available or any 
money to be appropriated. So that should make us nervous, ladies and 
gentlemen, that the language in the bill says we will do this and we 
will do that, build the items in title I and title II of the bill, but 
it will be done ``subject to the availability of appropriations.''
  Then they go on to repeat many times, ``moneys that are authorized to 
be appropriated.'' In other words, this bill is an authorization bill. 
It would authorize border enforcement. It would authorize bed spaces. 
But it does not fund it. It does not require it to be done.
  Two other trigger elements--workplace enforcement tools and 
processing of applications of aliens--are fine, but they do nothing to 
make sure the border is secured before the new guest worker amnesty 
program begins.
  So I am disappointed that the promise of an effective trigger is not 
what we see in the reality of the bill language.
  Principle 2: a future flow temporary worker program, the so-called Y 
visa. The principle is outlined in a new program for temporary foreign 
workers. That is what was in the framework in the PowerPoint. The 
PowerPoint proposed a new program where workers would be admitted for 2 
years and could have their visas renewed two times, for a total of 6 
years. Each period of admission would be separated by 6 months at home.
  Get that. This is what is in this new bill, as we understand it and 
read it. So this is going to be a temporary worker program. Workers 
would be admitted for 2 years. That could be renewed two times, for a 
total of 6 years, but each period would be separated by 6 months at 
home.
  I stated I was very concerned about this time frame. I argued last 
year that a genuine temporary worker program should be a 1-year program 
and that workers would come without their families and work on the max 
to be about 10 months, was my suggestion, then they would return home 
to be with their families, and that this could be renewed year after 
year as long as they were satisfactorily employed and the employers 
desired to hire them again and they had work to do.
  But I like the fact that the PowerPoint stated--this is what they 
promoted a few weeks ago or a month or so ago in the PowerPoint--that 
workers would not be allowed to bring spouses or children but could 
return home for visits with their spouses and children. The PowerPoint 
did not say spouses and children would be coming to the United States 
to visit the worker.
  Though no numerical cap was specified in the plan, the plan 
envisioned an annual cap set by the Secretary of Homeland Security, in 
consultation with the Secretaries of Labor and Commerce to set this 
cap, how many would come.
  Secretary Gutierrez told me he thought it might be around 200,000--
200,000. If workers wanted to apply for green cards, the PowerPoint 
stated they would be able to apply for permanent residence--a green 
card--but they would have to follow the normal merit-based channels and 
compete for the green card. Just because you are allowed to come into 
the program and work temporarily in a low-skilled job did not give you 
a leg up on somebody who was applying because they had a master's 
degree in mathematics. Also, they would have to leave the country when 
their work period expired, even if their green card status had not been 
granted but was pending. That is essential to the success of the 
project.
  Well, does the new bill fulfill the principles in principle No. 2 
that were stated to us? Will a truly temporary worker program be 
created that is comparatively simple and efficient as promised? I have 
to say the answer is no. There are at least three flaws that will make 
this program unworkable.
  First, the periods are too long. The bill sets up a program where 
workers come for 2 years at a time. I strongly believe 1 year is a 
better time period. I think 2 years is just too long.
  The periods, curiously, are limited. The bill only permits workers to 
come for two or three 2-year periods. Why do you limit that? It makes 
no sense to me to prohibit a worker who has come here for 2 years, gone 
home, 2 years, gone home, is a fine, skilled worker, the employer wants 
them, why they cannot keep coming, although I prefer 10 months at a 
time every year. After 6 years, the bill would cut off the worker from 
their employer unless they apply for a green card.
  So this is a plan, I suggest, that is not supportive of circularity, 
where a person comes and circulates back to their home country, 
maintains their base in their home country, but encourages persons--in 
fact, puts pressure on them, if they want to continue to work--to do 
everything they can to become a citizen when they may have no desire to 
be a citizen.
  We were in Colombia last year with Senator Specter. I met with 
President Uribe, and he talked about their temporary worker program. He 
was concerned. He thought the United States was being hostile to 
immigration. He expressed concern about that. He said: Why don't you do 
like Canada. We have people who fly up to Canada, they work and come 
back, and nobody ever has any problem. Well, I said: Mr. President, 
that is exactly what we should do. We would love to see that. But our 
system is so convoluted and so lawless, it is not working at all. We 
are not against immigration. We are not against the workers. But we 
want to make sure the number of workers is a legitimate number and that 
the system works. Our system is not working. I would love to have your 
system.
  Now, the numbers are way too high, I have to tell you. The bill sets 
the initial number of guest workers at 400,000 per year, not 200,000, 
then it adds an escalator clause based on ``market demand.'' So the 
real cap is 600,000 a year after a few years. Due to the fact that

[[Page 13266]]

the bill's market escalator--15 percent--is available in the first year 
of the program, the new program can result in just under 1 million 
workers being present in the United States in the second and third 
years of the program. About one million guest workers will be present 
in any given year under that program after the second year.
  Now, that will have an impact on wages in America. It will be about 
920,000 in year 2 here, the 2-year program, and 989,000 in year 3. 
These numbers do not include the 20 percent of workers who will be 
allowed to bring their families with them for their 2-year stay. So 
instead of complying with the promises that we would have a temporary 
worker program without families, we ended up with 20 percent of the 
temporary workers being able to bring their families with them for the 
full 2 years.
  So that is what makes this new temporary worker program unworkable. 
Families can come with a worker. The new temporary worker program 
allows workers to bring their families--spouses and children--with them 
in one of their 2-year stays and for 30 days at a time on parent-
visitor visas. So there is going to be a parent-visitor visa, which 
means you can bring children and spouses for 30 days at a time.
  There is no reason for a temporary worker program that should allow 
workers to bring their families with them. Workers can easily go home 
for a week or two at a time. The cost of travel for one person to 
travel would be cheaper than for a family to travel for a visit.
  Allowing workers to bring their families for either the 2-year period 
or the 30-day period will cause many practical, complicated ripple 
effects. Now we have got to be serious about this. We do not have 
enough Federal people to go out and search for everybody who is 
overstaying in our country and not complying with our laws. We need to 
create a good framework that reduces the number of people who are here 
illegally so they do not have to be run down and apprehended.
  So these are some of the things which will happen with children 
coming for 2 years: Local school costs will escalate as the children of 
these guest workers attend schools; the language barrier will create 
additional problems for No Child Left Behind requirements; difficult 
problems for teachers and principals who have to have language skills 
they did not have to have before; local emergency room and health care 
costs will likely escalate.
  So we are creating a magnet for dual citizenship. What worker would 
not want to bring their spouse in during her eighth month in pregnancy 
on a 30-day visa? This would guarantee that the spouse would receive 
great medical care during her delivery and would give the child dual 
citizenship.
  Down the road, Members of Congress now purporting to be enforcement 
hawks, when they have to talk about removing a family, leaving a child 
here who is a citizen of the United States, what will they do then? I 
submit they will crumble. You have to create a situation in which that 
is not likely to occur, not create a bill that encourages or 
incentivizes this kind of thing to happen. It is going to be too hard 
to require families who overstay go home. They have kids who are going 
to be in school; some will be U.S. citizens. That is not going to work.
  The temporary guest worker program in this legislation is set up to 
fail.
  Principle 3 in the PowerPoint presentation was that green card 
allocations would be adjusted to focus more on merit and chain 
migration, and the visa lottery program would be ended. This is a good 
deal. That was a good principle, a historic move in the right 
direction, following Canada and Australia. It was something that was 
never even discussed last year, except by me. Senator Mike Enzi on the 
Health, Education, Labor, and Pensions Committee agreed to have a 
hearing at my request to discuss that. We could never get a hearing in 
the Judiciary Committee where the immigration bill came forward. We 
learned a lot about it. Everybody who learned about the merit-based 
system liked it. So the White House PowerPoint stated the bill would 
change the way we distribute green cards to focus more on merit. It 
described how the current green card system is ``out of balance'' and 
``favors those lucky enough to have a relative over those with talent 
and education.''
  It noted how the United States currently dedicates 58 percent of the 
1.1 million green cards issued each year to relatives and only 22 
percent to people selected for their disabilities.
  This is the chart we had. It reflects that this is what the United 
States does; 58 percent of the immigration was based on relative 
ability, not merit. The PowerPoint noted how in other developed 
countries, Canada specifically, 60 percent of the green cards go to 
employment-based immigrants selected for their abilities. The 
PowerPoint described that in the initial years ``all diversity visas 
and some parent-preference visas would be used for merit based 
selection--creating 100,000 openings in year one.''
  Finally, the PowerPoint stated we would ``launch a visa system that 
sorts applicants according to national needs and merit.'' The system 
was described as a way to ``boost U.S. competitiveness, emphasize 
education,'' and ``make it easier for the best foreign students earning 
STEM (science, technology, engineering, or math) degrees at U.S. 
colleges to stay and work.''
  Negotiators describing the merit system described the implementation 
of a point system which selects legal permanent resident applicants 
based on their skills, education, language abilities, and age. That is 
good, isn't it? You would evaluate people who apply based on their 
skills, education, language, and age.
  To give you an insight into how significant this is, we have a 
lottery. Anybody in the world from any country can apply to be a 
resident of the United States. They can submit their name and it goes 
into a pot. They draw 50,000 names from that pot. If your name is drawn 
out, you get in regardless of whether you have any skills, merit, or 
anything else, other than perhaps you couldn't get in if you had a bad 
criminal record. To give some perspective on the situation the United 
States now finds itself in, 1 million people in the year 2000 applied 
for those 50,000 slots. Correction. My fabulous staffer Cindy Hayden 
has corrected me. Hold your hat. I was wrong. Not 1 million people 
applied for the 50,000 lottery slots; 11 million people applied for the 
50,000 lottery slots. What does this mean if we are trying to establish 
an immigration policy that serves our national interest? What does that 
mean? It means we have far more people who have applied to come to our 
country than we can ever accept. Professor Borjas at the Kennedy School 
at Harvard, himself a Cuban refugee, has said in his book ``Heaven's 
Door'' that for a poor person anywhere in the globe, coming to the 
United States is a tremendous benefit to them. All of them will 
benefit; almost universally they will benefit by coming here. It is not 
a question of whether the individual will benefit if they come here; it 
is a question of who can come here since we can't allow and have no 
capacity to come close to allowing everybody to come to America who 
would like to come here.
  What have Canada and Australia done? They said: We are going to set 
an immigration policy that serves our national interest. How 
commonsensical is that? Our national interest. We had a committee 
hearing on it. I asked Secretary Chertoff at one of the hearings: Do 
you believe that policies should serve our national interest? I was 
proud of him. He said, just like that: Yes, sir, it should serve our 
national interest.
  I believe it was the columnist Charles Krauthammer, in one of his 
columns about this subject, who mused as to whether we shouldn't be 
like the NFL football draft and look out all over the world and pick 
the best and brightest who would flourish in America and strengthen our 
Nation and make us a better, stronger, more vigorous, and talented 
country. There is much to be said there. That was the promise we were 
made, that this new bill was going to make a move toward the Canadian 
system. There are some steps in that direction but, unfortunately, not 
enough.

[[Page 13267]]

  I expressed concern at the time that the White House plan appeared to 
increase the number of green cards available each year. Page 21 of the 
bill indicated 1.4 million would be available each year, now at 1.1. I 
also stated it would be critical to examine how the point system was 
actually written, that the actual test had to ensure that low-skilled 
workers would not receive preference for green cards over high-skilled 
workers. Even though some business may think that is great, to have a 
bunch of low-skilled workers, that may not be the best thing for the 
national interest. Nor does the bill fulfill that principle we were 
told should be included in an immigration bill. Will green card 
allocations be adjusted to focus more on merit? Will chain migration be 
ended? The new bill will only do a fraction of the good it could have 
done. That is what is so frustrating to me. It came close. It made some 
progress, but it could have been so much better. We could have made a 
cleaner move to this kind of enlightened approach to immigration.
  They say we are going to end chain migration. Chain migration would 
be the ability to bring brothers and sisters into the country if you 
have been made a citizen. Also I thought it meant you would end the 
ability to bring in aging parents, but typical of the cutting the baby 
in half, the political compromise basically cut the number of parents 
in half who could come. So a number of aging parents will still be able 
to chain migrate in if their children have obtained citizenship. That 
is in the future, however. But between now and 2015, chain migration 
does not end but is actually accelerated. I kid you not. Instead of 
actually ending chain migration, the new bill only stops accepting new 
chain migration applications. The bill's sponsors take the numbers they 
eliminate from chain migration categories, about 200,000 per year, and 
then allocate those to adjusting the backlogged chain migration 
applications. In other words, people who have applied for chain 
migration get to come in.
  If this were not enough, the bill's sponsors then take the green card 
numbers freed up through elimination of the visa lottery program--
50,000--and also dedicate those numbers to processing not high-skilled 
people but the chain migration backlog applications. Even after 8 
years, when the chain migration backlog is supposed to be eliminated, 
points for family members will be issued through the merit system. So 
we are creating a so-called merit system, but it is skewed also, not to 
merit but to family. Six points are given for adult sons and daughters 
of permanent residents; four points for siblings of citizens and 
permanent residents; and two extra points if you have applied for a 
chain migration category between May 1, 2005 and now. So we are giving 
substantial points, tipping value points to lower skilled workers 
because they happen to be involved in the chain migration process. I 
don't think that is a good principle. It undermines the move we have 
been promised occurs through a merit-based system.
  Let me make this point. The merit system as proposed in the 
legislation will not receive ``100,000 openings in year one'' alone, as 
the PowerPoint presentation we were given promised. For the first 5 
years, current employment-based visa levels are kept the same--
140,000--until 2015. Only after 8 years will the number of employment-
based, skill-based, green cards be increased to 380,000. So in reality, 
chain migration numbers between now and 2015 will skyrocket. Chain 
migration is going to increase until 2015. The portion of family-based 
migration versus merit-based migration will be worse than it is today, 
perhaps much worse. Think about that. The PowerPoint we have been sold 
is that this is going to move to merit. Yes, it says that. Yes, it 
does. But when you look at the real numbers through the next 8 years, 
the numbers are going to be more chain migration, and it will be worse 
in terms of merit-based migration than exists today.
  Additionally, several characteristics of the merit-based system will 
work to undermine its stated purpose, which is ``to boost U.S. 
competitiveness,'' to ``emphasize education,'' and ``make it easier for 
the best foreign students earning STEM degrees at U.S. colleges to stay 
here and work.''
  The merit-based system will set aside 10,000 green cards a year for 
temporary workers, new Y visa holders. These workers will not have to 
compete on a level playing field with all other merit system 
applicants. Instead, they will only be competing among themselves for 
the 10,000 annual slots. Additionally, the merit-based system includes 
points for characteristics that low-skilled workers in the United 
States are sure to have. In other words, you create a temporary worker 
program that can bring in almost a million people in a 2-year period to 
do low-skilled work. Then you create a permanent system of immigration 
for those low-skilled workers when it is supposed to focus on merit. 
But the system then turns around and provides extra points for low-
skilled workers to help them get into this system. Sixteen points, for 
example, are given for employment in a ``high demand occupation.'' This 
list, to be produced by the Bureau of Labor Statistics, is sure to 
conclude jobs in the service industry, the construction industry, food 
processing industry, et cetera.
  Two points per year--up to 10--are given for the years of work the 
applicant has done for a U.S. firm. It is easy to see how a temporary 
worker, who is allowed to work in the United States for 6 years, will 
get 10 points here. That undermines the merit system in many ways, so 
there are a lot of subtleties here.
  Now, when Senator Kennedy and the others had their press conference 
to announce the grand compromise, Senator Kennedy or his staff, about 
that time, indicated only 30 percent of the people would come into our 
country based on merit and that, not to worry, we were still going to 
be, as one of his staffers said, a family-based system, a chain 
migration system, not a merit-based system. As we look at the numbers, 
I am afraid Senator Kennedy is more correct than I wish were so.
  There is another principle: the illegal alien population program, the 
Z visas. These are the people who are here illegally.
  The White House PowerPoint described how the proposal would give 
legal status to illegal aliens currently in the United States through 
new Z visas, but would provide them with ``no special path to 
citizenship.'' The Z visa sounded better to me than the plan last year, 
which was very bad and should never have become law.
  Specifically, the PowerPoint told us the Z visa holder would be able 
to apply for green cards, but ``only through regular programs,'' 
through ``point-based merit selection.'' According to the PowerPoint, Z 
visa holders would be ``ineligible for `adjustment of status' from the 
U.S. . . . Heads of household would need to return to their home 
country and follow the normal channel'' to be admitted into the country 
on a permanent basis.
  Well, does the new bill we have been presented with Saturday morning 
at 2 a.m. fulfill principle No. 4? Will the current illegal alien 
population be treated compassionately but not given a special path to 
citizenship, as they promised? The answer, I am afraid, and I am sad to 
say, is no. The new bill clearly creates a system whereby current 
illegal aliens are treated differently than those who try to come to 
the United States lawfully. It may not be ``jackpot'' amnesty, but it 
is some form of amnesty.
  My definition has been: Those who broke the law to come here should 
not receive every benefit this Nation has to offer, like those who come 
lawfully; namely, citizenship and certain economic benefits. If you 
come unlawfully, you should never get those things. That is an 
important principle.
  Mr. President, 1986 should have told us that. We need to establish 
and say from 1986 onward we are never going to let you be a citizen if 
you come unlawfully. We may say you can stay here with your family and 
your children--you are working, you have been here many years--maybe we 
can accept those kinds of compassionate realities. But to give them 
every benefit of citizenship as a result of breaking in line

[[Page 13268]]

ahead of other persons is not the right thing.
  I was very glad our Republican leader in the Senate, Senator 
McConnell, when interviewed yesterday by George Stephanopoulos on 
``This Week,'' drew a line in the sand for the Republican position on 
this issue. He stated:

       One thing is for sure: If this bill gives them any 
     preferential treatment toward citizenship over people who 
     came into the country in the proper way, that's a non-
     starter.

  Well, I agree. The one thing we can all agree we should not do is 
treat the illegal alien preferentially. So I am sad to say that after 
reading the bill I think there are several ways in which the language 
gives preferential treatment toward citizenship to the illegal alien 
population over people who have waited in line to come the proper way.
  First, illegal aliens who rushed across the border between January 7, 
2004--the date contained in last year's Senate bill--and July 1, 2007, 
will be eligible for amnesty. That is on page 260, line 25 of the 
legislation. This includes illegal aliens who have been here a mere 5 
months.
  I want to repeat that. Last year, the bill that was so fatally 
flawed--I thought was not principled--said if you wanted to be part of 
the amnesty it contained, you would at least have to have been in the 
country before January 1, 2004. This bill says you get amnesty if you 
were in the country up to January 1, 2007--just a few months ago, 4 or 
5 months ago.
  We put National Guard on the border. We have enhanced our Border 
Patrol. We put up fencing and all of this. But if somebody beat the 
system last October, last November, last December 31, and got into our 
country, they are going to be given amnesty under this bill. That is 
not sensible. It indicates we are thinking politically and not as a 
matter of principle.
  Advocates for this bill claim this bill is necessary because illegal 
aliens have deep roots in the United States and are, therefore, 
impossible to remove. This is simply not true in all cases. It is not 
true in all cases. For some cases, they are tough situations, I admit. 
But illegal aliens who have rushed across the border in the last few 
years, without their family--and including those who came 5 months 
ago--will be given all the same amnesty benefits as those who have been 
living here for 10 or more years in the United States, and raised 
children in the United States, and have never been arrested or done 
anything wrong.
  The American people may want us to treat the illegal alien population 
compassionately--and they do--but there is no reason to lump all 
illegal aliens into the same amnesty program regardless of when they 
got here or how deep their roots are into the United States.
  The bill also contains a provision that makes anyone who filed an 
application to come lawfully after May 1, 2005, have to start the 
process over by applying for a green card through the merit system. So 
if you applied lawfully after May 1, 2005, you have to start your 
process all over again--a burden to the lawful applicant. It is 
fundamentally unfair those who would come here 5 months ago should be 
put on this guaranteed path.
  Second, under this bill, only illegal aliens will be eligible for Z 
visas--visas that allow them to live and work here forever, as long as 
they are renewed every 4 years, and they have a special point system 
that allows the Z visa holder to adjust status to permanent status 
without regard to numerical limits. These visas are not available to 
anyone living in the United States who came here to work legally and 
who will have to go home once their visa expires.
  Third, under the bill, unlike any alien who wants to come the proper 
way, those illegally here will get legal status 24 hours after they 
apply, even if their background checks are not completed.
  Fourth, under the bill, unlike any alien who wants to come the proper 
way, illegal aliens may be exempted from a long list of inadmissibility 
grounds, including fraud or misrepresentation to obtain immigration 
benefits, and false claims of U.S. citizenship; and their prior 
deportation or removal orders can be waived, even if they never left. 
In other words, if they have been apprehended in some fashion, have 
been ordered deported and given a removal order, they can still be 
exempted from that, even if they refused to leave the country, as they 
were ordered to do so, if they can show hardship to their families.
  Fifth, it is important to remember that under the bill, unlike an 
alien who wants to come the proper way, a Z visa holder will be able to 
get a green card through their own separate point system, and without 
being subjected to the regular annual numerical limits, which is a real 
advantage, I would submit, to them.
  I see my colleague Senator Bunning is in the Chamber. I understood he 
wants to speak, and I will be pleased to yield to him at this time.
  But we do have a responsibility to fix this immigration system we 
have today. It is comprehensively broken. It is a lawless system. We 
arrest at the borders of the United States every year--hold your hat--
1.1 million people. That is because the word is out all over that we do 
not enforce our laws and you can come into this country unlawfully and 
get away with it.
  Now, we have to make a decision as a nation: Will we create a system 
that is lawful, that is principled, and that will work? Will we do 
that, or will we not?
  I have said in the last couple years when someone comes up with an 
idea that will actually work to enforce our law and end the 
lawlessness, that is what gets objected to. If you come up with an idea 
that will not work, will only have an incremental benefit, people are 
glad to pass it and say they did something about immigration. But that 
is not the way we have been doing it.
  In my mind, it is no good--this is the analogy I use--if someone 
attempts to jump across a 10-foot ravine and he jumps fully 9 feet but 
does not get across and falls to the bottom, how good is that? That is 
what we have been doing in immigration law. We have been passing bills. 
They have had loophole after loophole, gimmick after gimmick, 
impossibility after impossibility, and they have never worked. I think 
it is because in our base, in the Congress--we and the Presidents--they 
have not wanted it to work.
  It is time for us to listen to the American people. Their heart is 
right on this subject. They believe in immigration. They believe in a 
lawful system of immigration that can serve our national interest.
  Mr. President, it is a pleasure to yield the floor to my colleague 
from Kentucky. He understands this issue with great clarity. He is a 
man of principle and courage. He also is a man you do not want to be 
battling against with two outs and two people on base, our Hall of Fame 
baseball pitcher, Jim Bunning.
  I yield the floor.
  The ACTING PRESIDENT pro tempore. The junior senator from Kentucky is 
recognized.
  Mr. BUNNING. Mr. President, I thank Senator Sessions and thank him 
for his input and insight into what has gone on for the last 8 weeks or 
10 weeks. I thank the Senator for his explanation today on his 
perception of what is in this bill. I wish to add a few other comments, 
and I do have a couple charts that are on their way down to the 
Chamber.
  I rise to address some of the concerns I have about last week's so-
called immigration compromise and the way it is being shoved--or trying 
to be shoved--through the Senate this week. Last week's so-called 
immigration agreement is not a compromise in the traditional sense of 
the word. The proposal was written in secret by a small group of 
Senators and our current administration. This bill may not be a 
compromise, but it is compromising to this country's economy, national 
security, and the very foundation as a democracy rooted in the rule of 
law.
  America is a democracy operating under the rule of law. Since the 
very beginning of the American experiment, people came from all over 
this world--many countries with corrupt governments--where the law only 
applied to some and could be bought by the highest bidder for others. 
They came to live

[[Page 13269]]

where the Government respects the individual and where the individual 
respects the law.
  From our recent history, we have seen an alarming increase in 
immigration from people who don't think they have to wait in line or 
play by our rules. Instead of punishing these people, a few Senators 
and the administration have crafted a large-scale ``get out of jail 
free'' pass. No matter what you call it--X, Y, or Z visas--this bill 
will grant amnesty to millions of illegal immigrants all over this 
country. My wife and I, our 9 kids, and our 35 grandkids are all 
descendants of immigrants. Mary and I have taught our family to be 
grateful for our Nation's rich tradition of immigration. But more 
importantly, we have tried to instill in our family a deep respect of 
law. Appreciating the contributions the immigrant brings to our Nation 
does not mean we will surrender the right of our Nation and its 
citizens to decide who comes here.
  Like many people in the Commonwealth of Kentucky and all over this 
Nation, I have serious concerns about an immigration policy that 
rewards lawbreakers. Is granting amnesty to those who were lucky enough 
to be born or get to one of our border countries, and enter our country 
illegally, fair to those potential immigrants who have been waiting in 
other parts of the world? I wonder what message does rewarding those 
who willfully break the law send to our Nation's young people? What 
message does it send to the rest of the world? Doesn't it make everyone 
who is trying to play by the rules seem foolish? More practically, how 
many people do you think are going to come over our borders? Are you 
going to reward 5 million people for breaking the law or will it be 10 
million or maybe 20 million? Isn't it a distinct possibility this bill 
will grant amnesty to those who came here only to do our Nation harm? 
These are questions I am willing to get serious about for the American 
people, but is anyone else?
  Today we are going to have a vote to move the process forward. Some 
things are clear. This bill will grant amnesty to millions of illegal 
immigrants, period. It is true. It also creates a massive new guest 
worker program for low-skilled workers that does not truly limit costs 
to the system. What remains unclear is how much this great compromise 
will cost. If you look closely, the numbers are staggering.
  In 2004, there were about 4.5 million low-skill immigrant households 
in the United States--about 5 percent of our population. That number 
has only gone up. Let's look at this chart. Each of these households 
pays about $10,500 in taxes. That is less than almost every other 
American household. What is more alarming is how much they are 
receiving. Each of these households receives an average of $30,000 a 
year in immediate benefits. So they earn, or bring in, $10,000, and 
they get benefits of $30,000. That means each low-skilled amnesty 
household could cost the American taxpayer approximately $20,000 each 
year. Well, actually, $19,588, or twice what they are paying in.
  Let's go to the second chart. If we look at a breakdown in what they 
are receiving, that $30,000 a year in Social Security, Medicare, and 
transfer programs, cash, food, housing, social services, medical care, 
public education, and population-based services such as police and 
fire, $30,000 seems like a pretty hefty welcome basket just for 
crossing our borders. Here shows all the other benefits, and it all 
adds up to $30,160. These are the benefits I described.
  We will go now to chart 3. Most American families are taxpayers 
during their working years and tax-takers during their retirement 
years. Not so with the low-skilled amnesty family. The low-skilled 
amnesty household takes more from the Government than it pays in at 
every level. Therefore, claims that we save Social Security and other 
programs by importing young immigrant workers are simply a myth. You 
can see that households under 25 pay in $8,000 and take out $14,295; 
heads of household from 25 to 34, $10,000 paid in, benefits of $25,485; 
households whose head is 35 to 44, $12,000 paid in, $34,000 in 
benefits, all the way down to where the biggest burden is when that 
immigrant family and the head of that household becomes 65 or over, and 
they pay in $4,500 in taxes and other things, and receive $37,500 in 
benefits.
  The most expensive group, of course, is the 65 and older crowd. They 
cost the American taxpayers on an average of almost $32,000 every year. 
If we consider only the illegals given amnesty, those costs would add 
up to over--and this is shocking if you want to think about it--$2 
trillion--that is trillion with a T--over the lifetime they are here, 
from very young when they come in at 25 to when they become 65. There 
are currently 8 million nonelderly immigrants in low-skilled 
households. Eight million. Can you imagine the strain on Social 
Security when these people reach retirement age? Right here, where they 
are receiving the $32,000 in benefits that they don't pay in--they 
don't match. At that moment the program will be going into crisis--that 
very moment--because if you add them now, the baby boomers, and they 
will reach the age of 65 about at the same time. Our Social Security 
system can't handle that now. What are we to do if we add 10, 15, 20 
million more?
  The upcoming budget stifles the economy by levying the largest tax 
increase ever--ever--on American businesses and taxpayers, and what 
have we left our kids and grandkids? The biggest bill ever that they 
will not--I say will not--be able to pay.
  These may be hard numbers for some people to understand, but I wish 
to talk for a moment about who will be paying these bills. Look no 
further than your neighbor, families who have two mid-wage earners, now 
fall into the top 40 percent of our Nation's wealthy, according to the 
Internal Revenue Code--wealthy. My daughter Amy and her husband are now 
wealthy--with four children to raise.
  A recent study by the Tax Foundation found these working families, 
the middle class, are carrying the weight of the Nation's tax burden on 
their back. And let's not forget about our small business owners. 
Forty-three percent of the people in the top 20 percent of the tax 
bracket have business income, meaning they are creating jobs and wealth 
in our economy. Can you imagine the effect that continued tax 
increases, which will be inevitable to fund this kind of amnesty 
program, will have on our middle-class families and our economy? Is 
anyone willing to get serious about this for the American people?
  I don't know about my colleagues, but these numbers, over $2 
trillion, are pretty hard for me to comprehend. What is even more 
unbelievable is no one is talking about them. In fact, the Senate is 
being asked to pass this incredibly expensive bill in less than 1 
week--less than 1 week.
  How our Nation chooses to deal with immigration is one of the most 
serious questions Congress must address. Our immigration policy 
directly affects our economy, communities, and the rule of law. It 
requires a thorough, thoughtful, and serious debate. We should be 
debating each and every one of these issues I have put up here on the 
chart on the floor of the Senate--not rushing to get something through 
so that the President can sign it.
  But here we are about to vote to proceed to a bill that is not even 
in bill form. It is 326 written pages. By the time it goes into bill 
form, it will be close to 1,000 pages, and we don't even have a CBO 
estimate on the cost--not one CBO estimate. It didn't go through the 
committee process. At least last year we had a bill that went through 
the committee process. It was voted out. We spent 2 weeks on the floor 
of the Senate debating it. So at least last year we had a much more 
thorough discussion.
  The bill we dealt with and are dealing with this year has not even 
been considered in committee, and we are supposed to pass it by 
Memorial Day. That is a seriously flawed process. With the many 
questions that are currently being asked about this bill, we need to 
debate it thoroughly--each and every questionable paragraph--when they 
finally get it into bill form.
  We are going to have a substitute amendment shortly, after we pass a 
bill

[[Page 13270]]

that means absolutely nothing. If they do pass cloture on last year's 
bill, then the majority leader will propose a substitute to this new 
bill. Wouldn't it be interesting if someone objected and made the clerk 
read every sentence in that bill? How long do you think that would 
take? Two days, maybe more. I know the clerk would be very tired by the 
time the reading of the bill would be over. I am sure everyone in the 
Senate would realize exactly the seriousness of this bill. So I am 
asking all my colleagues in the Senate, let's not rush to judgment on 
this so-called compromise immigration bill we have before us. Let's 
consider it like the Senate should consider it. If we are the most 
deliberative body in the whole world, we should deliberately look at 
all the nooks and crannies in this compromise bill. I ask my colleagues 
to do this.
  I yield the floor and thank the Senator from Alabama for the time.
  Mr. SESSIONS. Mr. President, I thank the Senator from Kentucky. I 
hope people heard what he said and saw the import of the charts he 
produced. The numbers are so large it almost goes beyond our ability to 
comprehend. But according to the senior fellow at the Heritage 
Foundation, Robert Rector, one of the most acknowledged experts on 
social welfare in America and the architect of the historic welfare 
reform that worked far better than critics ever said it would work, at 
a press conference that Senator Bunning hosted this morning to give 
those figures, he said in his opinion--correct me if I am wrong--and he 
studied this and added up the numbers for days, weeks, and months, and 
he came up with the figure of $2.3 trillion as a net loss to the U.S. 
Treasury over the lifetime of those persons who would be given amnesty 
out of the 12 million; is that correct?
  Mr. BUNNING. He used the figure 12.5 million.
  Mr. SESSIONS. Based on the fact that half of those were high school 
graduates, that was a key factor. He was passionate; would you not 
agree?
  Mr. BUNNING. Absolutely.
  Mr. SESSIONS. Regarding the damage this would do to the financial 
well-being of our country.
  Mr. BUNNING. Will the Senator yield?
  Mr. SESSIONS. Yes.
  Mr. BUNNING. I know how desperate some of my construction people are 
in Kentucky, my horse farmers, the general farm community, the service 
industry, and the motels and hotels, for workers to be here, but they 
have to be here in legal form. They cannot be here and cheating to get 
across the border. We have to have legal immigration to service those 
jobs. I don't think this bill gets us there. That is why I have serious 
doubts that it is the right vehicle to take care of those workers we 
want to make sure get here to service our economy.
  Mr. SESSIONS. I thank the Senator. I agree. We are at the point of 
needing historic reform. I believe we could do that, but we ought to 
consider what Canada, Australia, and New Zealand have done to avoid the 
financial catastrophe we are headed for if we don't watch out.
  I yield such time as he might use to Senator Vitter from Louisiana, 
who is a lawyer and a Tulane graduate.
  The ACTING PRESIDENT pro tempore. The Senator from Louisiana is 
recognized.
  Mr. VITTER. I, too, rise today to strongly oppose the motion to 
proceed that we will be voting on in a few hours and to strongly oppose 
this absolute rush to judgment on this bill, rush to pass legislation 
that will have a huge impact on our country for 25 to 50 years or more.
  I start by thanking Senator Sessions for his hard work in defending 
the Senate procedure that is in place for a very good reason--to ensure 
the deliberative process, to ensure that important, weighty matters get 
careful consideration. That is what the American people deserve.
  That is what is absolutely threatened by this rush to pass this 
legislation, starting with the motion to proceed that we will be voting 
on in a few hours.
  The Senate is supposed to be the world's most deliberative body. Yet 
I and many other Senate offices have not had adequate time to look 
carefully at this so-called compromise proposal before this very 
important vote this afternoon. The first time the legislation was 
available to me or any other Senator was at 2 a.m. on Saturday. Yet 
right now, Monday, in a few hours, we are being asked to essentially 
start voting on it through the motion to proceed.
  I am especially disappointed because I joined 16 fellow Senators 
urging the Senate leadership to provide 1-week prior notice before we 
are asked to cast votes on this massive immigration reform bill. Rather 
than 1 week, of course, we barely get a day of the work week. As I 
said, this bill was not available for anyone's consideration until 2 
a.m. Saturday. Here we are on Monday about to start voting on this 
massive bill of 800 to 900 pages, at least. Maybe it will be near a 
thousand pages when it is put into proper bill form, which hasn't 
happened yet.
  There has been no committee consideration, no committee markups and 
vetting, which is the normal course of action, which at least happened 
last year during Senate consideration of immigration reform. Senator 
Reid, the majority leader, is rushing and urging us to finish this week 
before the Memorial Day recess. Folks haven't had any chance to study 
the bill yet and we are going to rush to try to finish it this week and 
there is no estimate whatsoever of its cost, no CBO score.
  In fact, the proponents of the bill haven't even requested, as I 
understand it, a CBO score to date. That should tell you something. I 
urge my fellow Senators to vote against this motion to rush to 
judgment, because that is what it is, and join the American public in 
urging the leadership to postpone any vote until it has had a proper 
chance to review carefully this massive proposal.
  I am not against all immigration reform. I am against voting on a 
bill that only a few Senators participated in crafting and that all 
Senators have not had adequate time to study carefully.
  Mr. President, an obvious question: Why are we in the midst of this 
rush to judgment, rush to pass this bill? I believe there is a very 
simple political answer, and it is that if the American people fully 
understood what was buried in this bill, there would be a massive 
outcry against it, and Senators--politicians at heart--would have to 
react to that outcry. I believe that is the simple, cold, hard 
political fact behind this rush to judgment and rush to pass this bill.
  Of course, the biggest item that I would argue falls into that 
category is the Z visa section of this massive immigration reform 
proposal. It would grant amnesty--I truly believe there is no other 
appropriate word for it--to millions of illegal aliens who have broken 
our laws to come into this country, who have broken more laws to stay 
in this country and, in many cases, get jobs. But this Z visa section 
of this proposal--better known as Z visa amnesty--would give all these 
millions and millions of illegal aliens the opportunity for pure, 
unadulterated amnesty. Make no mistake, this Z visa is amnesty, pure 
and simple. It rewards folks for breaking the law and lets them stay in 
this country without ever having to return to their homeland forever.
  I have an amendment that will strike the entire text of title VI and 
remove the Z visa amnesty program from the bill. I hope at least we 
have time for consideration of that and other crucial amendments. I 
will certainly offer this amendment, and the American public absolutely 
wants to have all Senators vote on record on that amendment and other 
important amendments.
  Again, we should not absolutely rush to judgment and rush to pass 
this bill, 800 to 900 pages or more. We don't know because it is not in 
proper bill form yet, with language only available to all Senators 
starting 2 a.m. on Saturday, and yet here we are Monday, the first day 
of the workweek, rushing to start voting on this bill.
  What is more, there is no estimate of the cost of this measure, costs 
that will be with us for decades and decades to come, no estimate of 
the cost, and

[[Page 13271]]

to date the proponents of the bill haven't even asked the Congressional 
Budget Office to start working on an estimate, which should give us 
some inkling of what that cost estimate might look like. Yet in the 
midst of this, the majority leader is pushing for final consideration 
of the bill this week, before we leave this week. Yet most of us have 
only begun to look at its exact language.
  Surely our Founding Fathers did not intend for this to be the 
legislative process. Surely they did not intend for a very few to 
represent the many, even in the Senate. We have 100 Senators who have 
votes in this body. All of them, not just the proponents and crafters 
of the bill, all of them, all of us should have a reasonable 
opportunity to digest this massive bill.
  The legislative process should afford elected officials and our 
citizens the opportunity to read, amend, and debate bills. Can we 
honestly say we have honored that principle by going forward with votes 
on this legislation starting today, with the leadership rushing to try 
to finish the entire process in the Senate by the end of the week?
  I ask my fellow Senators, is this a precedent we really want to 
establish for future very important legislation, legislation such as 
this that will affect our country for decades and decades to come? 
Clearly, this is not the right precedent. Clearly, we should have time 
to read the bill before we start voting on it, and we don't here. 
Clearly, we should have time to hear from the American people about the 
very important elements in this bill, and we don't. Clearly, all of us 
should know the cost estimate of this bill. We should get a CBO score 
before we start voting on this bill. And we don't. We are not likely to 
have that score before the end of Senate consideration with the 
proponents not even having asked for a CBO score, to my knowledge, to 
date. Clearly, something is up with this rushed process.
  Clearly, this process needs to go beyond this week, through the 
Memorial Day recess, so we can have an adequate and full national 
debate; not just Senate debate but a national debate among all our 
citizens and then be allowed to come back, flesh out details, offer 
more amendments, having digested the entire bill.
  On any vitally important matter, on any key bill numbering 1,000 
pages or so, on any legislation that will affect our country for 
decades and pose costs in the trillions and trillions of dollars, that 
is the right course of action. One has to wonder in that context why 
the Senate leadership is pushing for exactly the opposite course of 
action.
  Again, I urge all of my colleagues, however they are leaning on this 
bill, which they have only begun to read, to vote no on this motion to 
proceed to preserve the integrity of the Senate, the deliberative 
process, and to respect the American people enough to give them, as 
well as ourselves, the time to digest all important aspects of this 
massive bill.
  Mr. President, I yield back the remainder of my time.
  The PRESIDING OFFICER (Mr. Webb). The Senator from Alabama.
  Mr. SESSIONS. Mr. President, I thank the Senator from Louisiana and 
value his insight into these matters and so many other matters in the 
Senate. He has an incisive mind and is committed to the principles that 
have made America great.
  I wish to follow up on a few points that indicate to me the 
unhealthiness of where we are. Here is an Associated Press article from 
Saturday. Once again, we are hearing statements from the people who met 
to write this bill, as we did last year, that any amendments threaten 
the whole bill and it may not pass. It might fall apart if somebody in 
the Senate were to disagree and offer an amendment that was different 
than something the self-appointed negotiators agreed upon; and not just 
they agreed upon, but maybe some outside influences and special 
interests who have been working behind the scenes to see this 
legislation become reality from the beginning.
  I remember last year in the debate having an exchange with one of my 
colleagues who objected to amendments and said that we couldn't do this 
amendment, that the compromise that these groups had worked on together 
might collapse if a trigger amendment, I believe it was, that Senator 
Isakson was offering passed.
  I remember asking: Who was in this room where you all met? Were you 
elected to be in this room? Did outside groups submit information and 
approve or disapprove various provisions contained in the legislation? 
Are those the people who are going to be unhappy if some Member of the 
Senate, duly elected by the people of their State, disagrees and votes 
it down? Who gets to decide what is in a piece of legislation? The 
whole Senate or not? I just see some of that same little tendency out 
there today.
  I have an article by the Associated Press. This article goes on to 
note:

       Any one of the changes has the potential to sink the whole 
     measure, which was unveiled with fanfare Thursday but still 
     was being drafted late Friday.

  That is what Julia Hirschfield Davis said. She goes on to quote 
Commerce Secretary Gutierrez, who helped negotiate the compromise who 
``cautioned against revisions that could upset the framework.''
  I would like to have seen the bill follow the framework that 
Secretary Gutierrez and Secretary Chertoff provided when they said we 
were going to have a new bill. That framework sounded pretty good to 
me, but the details of it are not holding up to the principles of that 
framework.
  Secretary Gutierrez said:

       You take something out and you're creating a problem 
     throughout the system--you may think that you're only 
     tweaking one part. . . . We've got to be very careful as to 
     what is proposed to change.

  In other words, don't be messing with what we worked on.
  Interest groups also seem to be well informed:

       ``We're going to fight like mad to fix the parts we don't 
     like,'' said Tom Snyder, the national political director of 
     Unite Here!, a service workers union comprised largely of 
     immigrants.

  Not a normal union, a service worker union, comprised of immigrants.
  Then liberal activists who call the measure a good start but object 
to parts, but they say they have ```a couple of bites at the apple' to 
change it as it makes its way to President Bush's desk, said Frank 
Sharry, the executive director of the National Immigration Forum.''
  And another:

       ``We're not sure that our support will continue if the bill 
     that approaches the finish line has these kind of problems in 
     it,'' says Cecilia Munoz of the National Council of La Raza.

  So they make their points. All I am saying to my colleagues is that 
it is our responsibility as Members of this body to take extremely 
seriously the responsibility we have been given to craft an immigration 
policy that will serve--surely we can all agree--the national interest 
of the United States and the people who live here--a just, legitimate 
national interest. That has to be the pole star of what we are doing, a 
guiding star of how we are going to do our work. If we don't commit to 
that, then we are going to have real problems. We are going to try to 
adjust immigration policy based on special interest groups, what they 
think is important to them in the short run.
  If you are a business and hire people and don't have to have health 
care for them and they get sick, you don't have to take care of them, 
but they can go down to the local emergency room and have it paid for 
by the city and the county in which that person lives and you have 
gained an economic advantage.
  Why would you want to hire a lawful American citizen if you have to 
have more benefits or pay more wages? This is a real factor. We have to 
talk about it. You can bring in enough workers and, in fact, we are 
already doing it, to the degree it will drive down the wages of decent, 
honest, hard-working American citizens and prohibit them in this time 
of economic growth and prosperity of seeing their wages rise as those 
corporate leaders are seeing their wages rise in this time of 
prosperity with profits up.
  In fact, Professor Borjas of Harvard, who has written the book 
``Heaven's

[[Page 13272]]

Door,'' himself a Cuban refugee, is very concerned about the large flow 
of low-skilled immigration workers into America. Professor Borjas says, 
in his estimate it has reduced the wages of lower skilled American 
workers by 8 percent. That is real money. Not only that, it has 
prohibited people from having a chance to progress and rise in the 
ranks and be promoted and get an even larger paycheck than just the 
lower scale at which they may have started.
  On the Mall--not even on the Mall, at the foot of this Capitol--last 
year during this debate, I was taking a Saturday morning walk. An 
individual, an African American from Montgomery, AL, spoke with me. I 
went over and talked with him. He was going to visit relatives in New 
Jersey, and he stopped by with the family to see the Capitol.
  I asked him what he did. He said he was in the drywall business in 
Montgomery. I asked him how he was doing. We first talked about how 
good the economy in Alabama was doing. We had good economic growth and 
a lot of building had been going on. I asked him how things were going 
with him. He said: Yes, the county and the city are doing wonderful, 
but we're not doing so well.
  I said: What do you mean?
  He said: My father started this business as a young man, and we have 
been carrying it on. Really these are as bad a times as we have ever 
had.
  Why? Montgomery is growing, houses are popping up everywhere. There 
is economic growth in the commercial area in addition. I said: Why? Do 
you think it has anything to do with immigration?
  He said: I don't have anything against immigrants. I like them. But, 
yes, it really has. We have lost a lot of work.
  So I am saying to my colleagues, it is not always true that nobody 
will do this work. Sometimes it is a question of whether they will or 
can do it at a salary and an income level we want them to have, at a 
salary and income level that will allow them to take care of their 
family, that will provide a retirement benefit or health care for their 
family if someone gets sick. There are thousands, tens of thousands and 
hundreds of thousands of individuals similar to this man I just 
described who are seeing their piece of the economic pie being eroded.
  People disagree about that. They say it is not so. But I submit it is 
basic economics.
  We grow cotton and corn in Alabama. If someone were to bring into 
this country huge amounts of cotton, causing the price of cotton to 
fall, we would hear from our farmers, and people would oppose that, 
saying that is not proper. If they brought in huge amounts of corn and 
depressed the price of corn, wouldn't we be concerned about that? Is 
anybody concerned about the low-skilled worker, where we are seeing 
unprecedented numbers of people doing low-skilled work and adversely 
impacting the wages of workers in America today? It is happening.
  Do we need immigration? Do we have jobs that can't be filled by 
American workers? I think so. I have talked to business people in my 
State. I have had them tell me what is happening and share their ideas, 
and I am convinced we do. That is why I proposed last year that we 
create a legitimate temporary worker program, one that would actually 
work.
  The proposal in last year's bill was breathtaking in its lack of 
wisdom. The bill last year had a provision called temporary guest 
worker. But when you read it, what it said was that a temporary guest 
worker could come to America for 3 years as a temporary worker and they 
could bring their families with them; after 3 years, they could reup 
again for another 3 years and another 3 years and another 3 years. 
After the first 3 years here, they could apply to be a green card 
holder or a permanent resident and then be put on the road to 
citizenship. That is not a temporary worker program. Those people were 
supposed to go home after a certain period of time. But the way that 
proposal was set, they would not go home. Their children would be born 
here, their families would be settled here, and their roots would be 
deep in American soil and in the American community. Their kids would 
now be in junior high school, and somebody is going to walk in and say: 
Sorry, it is time for you to go back home to Mexico or Honduras or 
China or wherever they may have come from? That is not a practical 
solution. That makes no sense.
  We know we are not going to want to confront that kind of situation, 
so we objected to that and urged the idea that they have a legitimate 
temporary worker program and a legitimate program that is a temporary 
worker program, which would mean the worker came here without their 
family for a limited period of time and, with circularity, would go 
back home after their period of work had occurred.
  That is being done throughout the world today. A group from Colombia 
applies, and they go to Canada and they work for a season and then 
return home to Colombia. They never have any problem with that. They do 
not bring their families. They do not settle in for 3 years and then 
the Government of Canada expects them to go home. They have created a 
system that actually works because it is based on common sense and 
human nature.
  What I suggest is that we create a genuine temporary worker program 
where people can come to our country to meet those needs certified by 
the Department of Labor and that are in crisis. For example, my 
colleague, Senator Vitter from New Orleans, and I have talked about 
Hurricane Katrina. That is a national crisis. There are not enough 
workers to do the roofing and other things that need to be done. That 
would provide a basis for the Department of Labor to allow temporary 
workers--maybe more than normal--to come to the United States to help 
us through this crisis program. You could do that and still not pull 
down the wages of American workers, yet fill a critical need.
  I believe that if we are to avoid the problem of permanence, avoid 
the problem of a system that will not work because it invites people to 
sink their roots into the United States, it must be a system that does 
not allow families to come with the temporary workers. I believe 
strongly and I urge my colleagues to let us have a temporary guest 
worker program that allows people to come for 10 months and no more and 
spend at least 10 months at home. With a good ID, they could go back 
and forth throughout the year if they chose to. That would work.
  Some say: Well, some companies aren't seasonal. Some companies need 
people all year. Well, you could stagger the number, for heaven's sake. 
The return-home periods could be staggered. Maybe you would need for a 
given business 12 workers instead of 10, but you could cover the whole 
period. The system would be clear that the person would come just for 
temporary work and would go home. Frankly, I am not aware of why we 
would want to say that type of program should end. As long as a person 
wanted to come and as long as a business wanted them there to work, I 
don't see why they should be required to end after 6 years or 8 years 
or however many.
  Now, under this bill, what we find is this: Under the temporary 
worker program that is supposed to be without family, we find that 20 
percent of them do bring their families. Not only that, they do not 
come for 1 year or less; they would come for 2 years, have to go home 
for 6 months, come back for 2 years, go home for 6 months, come back 
for 2 years, go home, and never return, which is sort of weird, to me. 
So I am just not sure that this has been thought out carefully.
  I believe we could create a better, more practical immigration 
system--one which we could be proud of and which would actually work--
and provide the amount of labor we really need in our economy without 
having an amount that depresses the wages of American workers. We have 
to be careful about that. We really do.
  Mr. President, I see Senator Corker from Tennessee is here, my 
neighbor, super mayor of Chattanooga, just across the Alabama line. If 
you can't be from Alabama, Chattanooga is a good place to be. I yield 
such time as the Senator would consume.

[[Page 13273]]

  The PRESIDING OFFICER. The Senator from Tennessee is recognized.
  Mr. CORKER. Mr. President, I thank my neighbor from the great State 
of Alabama, and I rise today to express concerns over the speed at 
which this legislation is being addressed this week.
  I thank the many Senators and all the staff members who have worked 
for weeks and months to put forward this piece of legislation--a piece 
of legislation we received at 1:58 on Saturday morning. This is a 
condensed form. In its bigger form, it could be three times this size. 
This evening, at 6 o'clock, I will be meeting with other Senators to 
walk through this legislation to see its impact on the citizens of this 
country, to see its impact on neighborhoods, on public hospitals, on 
schools, on counties, on judicial systems, on sheriffs, on businesses, 
and on people throughout this country.
  Many of the pieces of legislation we deal with in this body relate to 
tax reform or they are pieces of legislation that may deal with a 
program. I don't know of any piece of legislation that touches as many 
people in as many ways as does this piece of legislation. So I rise 
today to encourage my fellow Senators to take a break, to give us the 
opportunity to actually digest this legislation.
  Again thanking the Senators who spent so much time in giving us this 
piece of work here for us now to debate, I rise today to encourage my 
fellow Senators not to rush into this debate, to give us the time to 
actually look through the intricacies of this bill and see how it 
affects everyone involved.
  This is one of the most major pieces of legislation we will deal with 
in this Congress. My attempt today is in no way to stonewall, in no way 
to not deal with an issue that is important to our country, but instead 
to make sure we, the ``greatest deliberative body in the world,'' 
actually deliberate, that we actually look at this bill in detail, that 
we actually take our responsibilities seriously.
  I have great concerns over the content of this legislation. My guess 
is that many of the people involved in drafting this legislation have 
great concerns over this legislation. We all should take the time this 
week to go through and look at what this legislation actually says and 
to hear from groups that are actually affected seriously by this piece 
of legislation. Perhaps we should take our normal recess, or work 
through it if we need to, but come back and then, as the ``greatest 
deliberative body in the world,'' actually deliberate and debate this 
legislation.
  Again, I have great concerns, and I am rising here in the Senate to 
ask other Senators to join me in urging caution, to make sure we put 
forth a piece of legislation that truly reflects the values of this 
country and addresses this immigration issue in the way it ought to be 
addressed.
  Mr. President, I yield to the great Senator from the State of 
Alabama.
  The PRESIDING OFFICER. The Senator from Alabama.
  Mr. SESSIONS. Mr. President, I thank the Senator from Tennessee, and 
I believe he is telling us correctly that the way we were taught in 
school is that Senators ought to have an opportunity to understand what 
is before them before they vote. We are dealing with an extremely 
complex piece of legislation, and the more you get into it, the more I 
have been involved in it as a member of the Judiciary Committee and in 
the floor debate last year, the more I see you have to be realistic and 
practical and thoughtful and principled if you want to make this system 
work, and we are a long way from that.
  I think what Senator Bunning said earlier about the cost of this bill 
is important for us to consider. I understand some work is being done 
on a CBO score. I don't know if that is true, but I have heard that the 
Congressional Budget Office is attempting to score this, but it is 
difficult, I assume. They can't give a real score because we don't even 
have the bill in final form yet. It is still referred to as a draft and 
hasn't even been introduced. So until something is actually introduced, 
there is no way we can get a score. But I can tell you a little bit 
about the way this thing was handled last year.
  Those of us who were concerned about it last year asked for a score 
on the bill from the Congressional Budget Office to find out how much 
it would actually cost. We got a troubling number, and we used that 
number a day before we had a final vote, and then a month or so later, 
we got a more complete score from the Congressional Budget Office. I 
think that bill was probably less complicated than the one we are 
dealing with today, and they scored the bill, over 10 years, to be $127 
billion in cost. Now, they excluded from that the money we spent on 
enforcement. I didn't count that. This was based on lost tax revenue, 
it was based on the welfare and other direct benefits to people who 
would be legalized under that bill and how much more they would draw 
from the Treasury than they would pay into the Treasury, and they came 
up with a cost of $127 billion over 10 years. Similar to last year's 
bill, this bill puts things off for 10 years. That is what the Budget 
Office scores normally on, a 10-year cycle. They score it on that 
basis, and that is how they came up with $127 billion.
  When we asked them--I believe at a public hearing--what about the 
next 10 years, they said: Well, it would definitely escalate. It will 
definitely be higher. Okay. Why? Well, because the lineup and the 
movement of people to green cards and citizenship was delayed by the 
bill. They were legalized in our country and they could stay, but they 
didn't get a permanent resident status, which gives you many welfare 
benefits and other benefits and citizenship, until the second 10 years. 
Do you understand that? That is when the big money is out there. That 
is what Robert Rector told us today at this press conference. That is 
what his study at the Heritage Foundation points out. He convinced us 
all last year. One thing you don't hear as much as you used to--oh, we 
need this immigration flow, these hard-working, low-skilled immigrants; 
they do a good job for us, and that is going to help us with Social 
Security and Medicare because we are an aging population, and we need 
those people coming into the country. They are going to help us with 
Social Security and Medicare.
  Mr. Rector demolished that argument. It is completely bogus. It is 
off the table. I hope nobody will suggest that anymore. Those were the 
people I called the masters of the universe up on Wall Street somewhere 
thinking they know: ``Oh, well, we don't want to be like Europe, we 
will just bring in this immigration and that will solve our debt 
problems for the future.''
  Isn't that wonderful. But it doesn't work that way. Mr. Rector 
explained it last year and today with tremendous passion at a press 
conference. Half of the 12 million people here--at least half, maybe 
more, maybe 60 percent, there are different estimates--do not have a 
high school degree. Some of them are illiterate even in their own 
language. Mr. Rector studied the numbers on that. He used a framework 
of the National Academy of Sciences study in 1990. That study tried to 
analyze the economic impact of immigration. He took this 
disproportionate number of low-skilled and uneducated workers and he 
demonstrated, as Senator Bunning told us, that it is not this year and 
not next year the crisis will hit us, but in the outyears. Do you know 
what Mr. Rector said? He said they will begin to draw the biggest 
amount of money about the time the baby boomers are drawing the biggest 
amount of money out of the Treasury, and Medicare and Social Security 
will be damaged tremendously by this program.
  It is hard to talk about that. It is painful to talk about it in 
those terms, I have to tell you. We hate to do that. But a nation like 
Canada has had to deal with it. They wrestled with it and they decided 
it makes sense for them, since they cannot accept everybody who wishes 
to come to Canada--it would overflow the country, and more people want 
to come than they can accept--that they would accept people who have 
the job skills, the education,

[[Page 13274]]

and the language skills that will be successful in Canada and therefore 
they will pay more in taxes than they will take out in benefits.
  Mr. Rector calculated what happens when you take the workers, the 
low-skilled workers who will be provided permanent legal status--call 
it amnesty or not--in this country, who will all be able to stay. He 
factored out a mortality rate. He was very complex and detailed in the 
analysis, following the principles of the National Academy of Sciences. 
He concludes it would cost the U.S. Treasury, over the lifetime of the 
people who will be provided amnesty, $2.3 trillion.
  A trillion is 1,000 billion. I got into an argument down here about 
attorneys' fees and I talked about attorneys getting $50 million and 
$100 million. One attorney in Mississippi got a $100 million check and 
no bank in Mississippi could cash the check. I was winning the 
argument. Then we started finding out they got billion dollar fees. The 
Baltimore Orioles guy got $2 billion in legal fees. We started talking 
about billions and I lost everybody. Nobody understood what we were 
talking about. It was too big; nobody could comprehend it and the steam 
went out of the debate.
  But I am telling you, $2.3 trillion is a lot of money; $2,300 billion 
is what that is. Pretty soon you are talking about real money. We have 
to think about this. I hope we will--very much.
  I will raise it as a moral issue. Remember, we have a certain zero 
sum game. We will put an ultimate level on the number of people who can 
enter our country. The question is, who will enter our country? We 
know, as I noted earlier, in the year 2000, 11 million applied for the 
50,000 lottery slots. Think about that, 11 million want to come to 
America and they applied for those lottery slots. Only 50,000 names 
were drawn out of that 11 million. We can't accept everybody, and we 
should focus on what we can do for the people who will most likely 
flourish here, will pay more in taxes than they will take out in 
revenues, and who have proven themselves acceptable. Since we can't 
take everybody, let's raise this question.
  Under the current law, here is the choice for the immigration 
official. You have a person who dropped out of high school, has not 
done very well, has no English skills, but has a brother in the United 
States who is a citizen. Compare that to another young man in Honduras, 
say, who finished at the top of his class, and was the valedictorian. 
He took English classes because he wanted to take English. People all 
over the world learn English today. It is an international language. 
Millions of people know English all over the world. So he knows 
English. He took the technical and college courses he could get there. 
He had a couple of years in college. They both apply to be citizens. 
Who gets in? The answer is crystal clear: The brother with no 
education, no skills, is going to get in, and the other one will have 
zero chance to get in.
  We need family reunification. Everybody who becomes a citizen needs 
to be able to bring their parents. Why? Church groups are asking that. 
I ask, Why? If somebody leaves their family, goes to the United States 
of America, decides to be an American citizen and now feels they have a 
constitutional right to bring their aging parents in to be taken care 
of by the American health care system, why is that? If that parent is 
brought in, it denies that young person in Honduras, who has worked 
hard, studied hard, learned English, and dreams of being an American 
and dreams of the opportunity of coming to this country--because we 
have a limit to how many people can come. See? If we can't accept 
everybody, what basis do we use to decide who gets to come?
  I think that is an important concept. I urged and was very pleased 
when the White House and members of this group who are negotiating this 
bill said they were going to move to the Canadian point system, a 
merit-based system. That is the right thing for us to do. It only makes 
common sense. It is what Australia, New Zealand, as well as Canada, are 
doing. I understand the Brits are moving in that direction. I think 
they are moving towards it in The Netherlands and other advanced 
countries.
  We ought to be moving in that direction. I am disappointed the move 
was so small, and such an incremental step. I am not even sure that is 
going to be acceptable because prominent Democratic Senators have 
said--and Senator Reid earlier today used this phrase, which made me 
nervous,--``this is a good start.''
  What does a ``good start'' mean? It means, well, it may change on the 
floor of the Senate. Then it could go to Nancy Pelosi and the House of 
Representatives, and they may take out the merit-based point system. Or 
it could go to conference where the conference committee will be formed 
to work out differences between the House bill and the Senate bill, and 
who will dominate the conference? Harry Reid and Nancy Pelosi. She will 
appoint a majority of the House Members and Harry Reid will appoint a 
majority of the Senate Members, and the bill then comes right out. What 
they say is going to be in it. Senator Reid a while ago indicated his 
concern about a move away from family migration.
  I don't know; I am nervous about this legislation. Here we go, are we 
going to get together and hit the bait? They throw out a point system, 
a merit-based system like Canada, and this is going to be a big deal 
and we all bite it and it is not there. We get hooked.
  What we do know is it is a very small step. It may be an important 
step, but a small step. According to Senator Kennedy in his press 
conference and his statements through his staff, they calculate this 
will move the merit-based system in the United States from the 22 
percent we have today to 30 percent. About 8 or 10 percent is all it is 
going to increase merit-based immigration into America. That is what he 
said.
  He said it to the leftist groups that have all been hollering about 
this and objecting. He says, Don't worry, there is nothing to it, it is 
not a point system at all. His staff, I believe his press secretary, 
said flat out, ``This is a family-based immigration system.''
  You tell me what it is. Canada got to 60 percent, Australia 62 
percent, on merit based. They are very happy with that. I have met with 
the director of the Canadian system. I met with an individual from 
Australia who is involved with it. I asked him how it was working, are 
they happy? Yes, they are.
  They considered things such as if you are willing to go to a more 
rural province that needs workers, you get more points. Because that 
serves the Canadian or Australian interest. A lot of things such as 
that can be made part of a thoughtful bill, which we do not have here, 
I am afraid.
  Why is it important we go to the merit-based system? There are 2.3 
trillion reasons why.
  Look at immigration. Rector explained it to us last year. He is a 
senior fellow at Heritage. You get sort of a skewed picture. If you 
take the smaller number who come to America with any college, he said--
2 years of college or above--they tend to do fabulously well. They tend 
to be very successful. They and their children almost never go on 
welfare. They pay their medical bills. They do well and they prosper. 
Many of them are providing scientific expertise that may be the cure 
for cancer and other diseases and have other capabilities, so that has 
tremendous benefits to us.
  When you add it all up and average them out, it makes the fundamental 
system look better than it is. But if you take the lower skilled 
workers, their productivity is not as great.
  I do not believe we ought to create a system that denies people, 
those who come in initially on a lower skilled workforce basis, the 
right to apply and compete on a merit basis. So if you choose to come 
as a low-skilled worker, you work as a bricklayer or something of the 
kind, you take advantage of junior college courses and you learn 
English and you get a few hours or some years of credit in college, and 
then you apply. They should be very competitive. They will know English 
probably by that time. We are not creating an underclass that gives 
them no chance to apply. But the system should

[[Page 13275]]

apply, I suggest, in such a way that temporary workers can apply for 
permanent resident status and compete against anybody else. I believe 
that will work.
  We have very little increase in the bill as we see it in the high-
skilled workers. We have not made a lot of progress toward dealing with 
those, many of the highly educated people who graduate from our best 
universities. They come here, advance to the top of their class at a 
university, and we often send them straight home.
  I think we have a strong feeling that we should fix that. But, so 
far, our evaluation of the bill indicates that it is not fixed very 
well at all.
  Congress needs to seize the moment. We need to pass legislation that 
will improve our immigration policy, a policy that serves our national 
interests, our legitimate, just national interests, and that will 
secure our border and create a lawful system.
  These goals will not be accomplished by last year's bill. That is 
what we will be voting on in a few minutes, cloture on last year's 
bill, which I have a great deal of concern with and could delineate a 
host of reasons it is a total disaster. And they won't be accomplished 
with a new bill that we are forcing through today.
  So that is a concern for us. I do believe the principles set forth in 
the PowerPoint presentation attracted my attention, got my interest up 
because I thought it would move from a framework that last year's bill 
had, which was a failed framework, to a framework that could actually 
be effective to accomplish what we want.
  I am disappointed, almost heartbroken, because we made some progress 
toward getting to this new framework, but the political wheeling and 
dealing and compromising and splitting the baby has resulted in a 
circumstance that--we just did not get far enough. I wish we could do 
better. We have got to do better. This is a historic opportunity.
  If we do not grab the bull by the horns now, we are going to be 
sorry. I would suggest that my colleagues say now is the time to pass a 
bill. I agree. But what I would say in addition is, let's pass a good 
bill.
  Mr. President, I see my colleague from Nebraska, Senator Nelson. I 
believe he wanted to share some remarks. I would be glad to yield to 
him in a moment and just say that I appreciate his service to the 
country on the Armed Services Committee. I was a member of his 
delegation. We got back a few weeks ago from Iraq.
  Senator Nelson, thank you for your leadership of that delegation. It 
was a meaningful visit to Fallujah and other places. Thank you for your 
principled and effective leadership on immigration. I yield to you at 
this time.
  The PRESIDING OFFICER (Mr. Salazar). The Senator from Nebraska is 
recognized.
  Mr. NELSON of Nebraska. Mr. President, I thank my colleague from 
Alabama. It is true that we did have a very eventful trip to Iraq to 
talk about what needs to be done there.
  But today the opportunity arises to discuss the concern that I have 
with the latest attempt by some of my colleagues to push forward with a 
``comprehensive'' immigration reform bill.
  We have been here before. Last year, the Senate pushed through a 
mammoth bill that sought to reform our immigration laws on a 
comprehensive basis. Yet, as predicted, that bill failed. It was a ``do 
everything'' bill that ended up doing nothing.
  Well, here we are again this year watching efforts to push through 
another ``do everything'' bill. What is more, this year the language 
has yet to be finalized, and certainly no Member of this body has been 
given the kind of time needed to review the proposal and analyze its 
provisions.
  Our immigration system is broken. But, apparently, so is our system 
for fixing it. That is why last year I tried to change the debate on 
immigration reform. Along with my colleague, Senator Sessions, and our 
colleague, Senator Coburn, we introduced a bill that focused solely on 
the most important component of immigration reform, and the first 
component of immigration reform, border security.
  Last year during this debate, I tried time and time again to convince 
my colleagues that a comprehensive bill would get nothing accomplished 
and that we needed to concentrate on securing the border first. Today 
we find ourselves right back where we were last year: Debating a 
comprehensive bill that has not been finalized, has not been given 
proper consideration, and that, again, will not achieve any of the 
goals we had. So, again this year, I emphasize to my colleagues we must 
concentrate on border security first.
  We can only hope to solve our immigration problems if we take it one 
step at a time. There are three steps to resolving this problem: First 
is border security; second is fixing legal immigration and the process 
of legal immigration; and third is addressing those who are here 
illegally.
  Now, we can take steps 1 and 2 at the same time. So we made some 
progress on the first step last year. We passed the Secure Fence 
Initiative, and the folks at DHS have made some progress on fixing and 
securing the border. We should give the border security provisions a 
chance to prove that they will work and can effectively slow and stop 
illegal immigration. But instead we are being asked to jump to step 3 
before steps 1 and 2 are completed.
  We need to concentrate on accomplishing border security first, as the 
first step for the first leg of this stool. We still have a lot of work 
to do to fix our current system of legal immigration. Why would we jump 
this step and reward these who are here illegally and effectively 
punish those trying to enter this country legally, the right way?
  The current immigration process has left so many people frustrated 
with trying to do the right thing and enter this country legally. 
Clearly, we should make sure to help those individuals first. As I have 
said time and again, we need to close the back door to illegal 
immigration while we open the front door to legal immigration. Instead, 
this bill adds more complications and more complexity to our legal 
immigration system that is currently overworked with backlogs and long 
wait times for people who want to enter this country the right way.
  We cannot change the letters for a visa from H to Y or Z and expect 
it to work better. We cannot add some complicated and difficult point 
system and expect it to work. We have to fix the system for legal 
immigration, not make it more complicated and even more unworkable. 
This bill will add more problems onto a broken system. We are digging 
ourselves deeper.
  Therefore, I believe only after we have accomplished the first two 
steps, which we can do, and can demonstrate that we have made 
considerable progress toward solving those problems, only then can we 
proceed to the third step and turn our attention to handling 10 or 12 
or more million people who are here illegally.
  We must secure the borders so we do not have millions more illegal 
immigrants. If we do not, we will only encourage millions more to cross 
the border illegally in the hopes of being part of the amnesty offered 
under this legislation.
  From what I have seen and read thus far, I think this bill is only 
about half right. Since it has a series of so-called triggers, the 
current compromise certainly seems to recognize that we have to do 
border security first. So if we recognize we cannot solve our 
immigration problems without first securing the border, then why do we 
continue to insist on mixing in the comprehensive provisions at the 
same time?
  If we can understand the need for triggers based on border security 
and workplace enforcement, then we should understand that we cannot 
solve this problem all at once. Why do we continue to rush to pass some 
``comprehensive'' measure when we can approach this problem one step at 
a time?
  I propose that instead of triggers, we should consider only passing 
those provisions dealing with border security and enforcement and those 
provisions dealing with worksite and interior enforcement. Instead of 
pushing through everything at once, we need to start solving the 
problem at the border and working from there.
  In conclusion, I will vote for cloture on the motion to proceed, but 
not because I support the underlying bill. I

[[Page 13276]]

will support cloture only because I hope we can significantly improve 
this bill so that it addresses the problem properly: at the border 
first and then fixing the legal immigration system. If we do not come 
up with a bill that properly addresses the issue the way I believe it 
needs to be addressed, then I will not be able to support the final 
product.
  I will vote to give us a chance to create a bill that focuses on 
securing the border first and that fixes our broken system for legal 
immigration. I will not, however, support a comprehensive amnesty-based 
bill that creates more problems and that fails to secure our borders 
first.
  Madam President, I yield the floor and suggest the absence of a 
quorum.
  The PRESIDING OFFICER (Ms. Klobuchar). The clerk will call the roll.
  The assistant legislative clerk proceed to call the roll.
  The PRESIDING OFFICER. The Senator from Alabama.
  Mr. SESSIONS. Madam President, I ask unanimous consent that the order 
for the quorum call be rescinded.
  The PRESIDING OFFICER. Without objection, it is so ordered.
  The Senator from Alabama is recognized.
  Mr. SESSIONS. Madam President, I had time set aside. Has that time 
expired? How much time is left?
  The PRESIDING OFFICER. The Senator from Alabama has 1 minute 20 
seconds remaining.
  Mr. SESSIONS. Madam President, well, I see my colleagues here. I 
thank Senator Nelson for his work on immigration last year and this 
year. I see others here prepared to speak. I yield back the remainder 
of my time.
  The PRESIDING OFFICER. Under the previous order, the remaining time 
until 5:30 p.m. shall be equally divided and controlled by the two 
leaders or their designees.
  Who yields time?
  The Senator from Massachusetts is recognized.
  Mr. KENNEDY. Madam President, how much time do I have?
  The PRESIDING OFFICER. The Senator has 38 minutes.
  Mr. KENNEDY. Madam President, I yield such time as the Senator from 
Colorado might use.
  The PRESIDING OFFICER. The Senator from Colorado.
  Mr. SALAZAR. Madam President, let me first begin by making some 
acknowledgments as we move forward on this debate on immigration reform 
for our country.
  First, to the majority leader, Senator Reid, for having kept the feet 
to the fire in this Chamber so that we finally will have an opportunity 
to move on to one of the most important national security issues that 
our Nation faces today. I appreciate his efforts and his leadership to 
help lead our country in a way where we deal effectively with this very 
difficult and contentious issue of immigration reform.
  I also thank the President of the United States, President Bush, and 
his Cabinet Secretaries Chertoff and Gutierrez for the work they have 
done now over the last 3 months as we have tried to put together a 
comprehensive immigration reform proposal that will work for our 
country.
  I thank my colleagues in the Senate, both Republicans and Democrats, 
who have come together in good faith to try to deal with this very 
important issue. I know we have a long week ahead of us as we move 
forward with the immigration debate on the reform proposal in the 
Senate. I am confident at the end of the day the national security of 
this country will require us to move forward with passage of 
legislation that will bring our Nation into the 21st-century reality of 
the immigration challenges that we face.
  As I approach this debate and I have worked on this legislation over 
the last 4 years--I am mindful of several things: First, that this is 
not a new debate; this is a debate where last year, for 1 month, we 
spent 1 month of the time of the Senate on this floor dealing with the 
very same issues that we are going to deal with again.
  So for those on the other side who might say this is coming upon us 
too fast, I will simply remind them of two things: First, we spent an 
entire month dealing with immigration reform last year, and we were 
able to get a bipartisan consensus to vote a bill out of the Senate 
last year. And, secondly, we were given very ample warning by Senator 
Reid when he said to all of us that this was an important issue that we 
would be working on in the last timeframe remaining before the Memorial 
Day break.
  So here we are now. The time has arrived. We must not let our country 
down. We must move forward and deal with immigration reform in a way 
that makes the most sense.
  Now, as I approached this issue, I asked myself the following 
question: What is the aim? What is the aim?
  Well, the aim is about the national security of the United States. 
How is it that we are going to provide a greater amount of security to 
the United States of America? In my view, the bipartisan legislation 
that has been put together is a tough law-and-order bill and a real 
bill, a realistic bill that provides realistic solutions.
  It is not a bill that is liked by those who want essentially not to 
have any progress on immigration reform because they would rather the 
debate go on not 2 years, not 5 years, but 10 or 20 years. It is not 
about satisfying them. This issue, from our point of view, is making 
sure the national objectives are objectives that we are able to 
address.
  Let me talk to you to let you know what it is that is on my mind. 
First, we need to secure our borders. As a nation, we have a sovereign 
right to make sure our borders are secure. As a nation that is very 
concerned--rightfully so--about the threat of terrorism, it is 
important we know who it is that is coming in and leaving our country. 
We need to know our borders are, in fact, secure.
  Second, we need to know the laws within our country are being 
enforced. For far too long on the issue of immigration, our enforcement 
mechanisms have looked the other way. That has allowed a system of 
lawlessness and illegality to continue. We need to have a system of 
laws that will, in fact, be enforced. That honors a fundamental value 
of our Nation, which is that we are a nation of laws. For us simply to 
look the other way is not the American way. This bill will accomplish 
that.
  Third, we need to secure the future of America's economic realities 
and challenges. We do that with a process that will penalize those who 
are here illegally. We will have them pay fines that will put them at 
the back of the line, that will require them to learn English and to 
remain crime free. Then if they survive a purgatory of, on average, 11 
years, at that point in time they would be eligible for a green card. 
So for those on the other side who might say this is an issue of 
amnesty, they are wrong. When you have to march through that kind of 
pain and pay the fine and do the time for having violated the law, it 
is far from anything that anyone ought to be labeling as amnesty.
  Let me spend a few minutes talking about each of the components; 
first, securing America's borders. It is true that there are about half 
a million, maybe 600,000 people who come across our borders illegally 
every year. What we have done in the legislation we crafted together is 
we have required that there be a set of triggers that have to be met 
with respect to securing our borders. We will require that there be 
18,000 new Border Patrol officers helping us secure our borders. We 
will require 370 miles of fencing to make sure that in those areas that 
are vulnerable on our border, those areas are secure. We will require 
200 miles of vehicle barriers in other places to make sure that that 
border is secure both on the south end as well as the northern. We will 
require 70 ground-based radar and camera towers so we can keep watch on 
the entire border. We will require seven UAVs, unmanned aerial 
vehicles, to make sure we know what is happening across our borders, 
and we will require new checkpoints for ports of entry.
  When this legislation is introduced, passed, and when this 
legislation gets implemented, as it will be, one thing we can tell the 
American people is we

[[Page 13277]]

will have a secure border. Securing our borders is not enough, because 
the other aim has to be enforcing our laws within the interior of the 
country. Some people say it is all of the illegals across the southern 
border that has led to the current reality of 12 million undocumented 
workers. The fact is, many of the people who are undocumented workers 
entered this country through legal means. They simply overstayed their 
visas. Time and time again, it is estimated that probably more than 
one-third of those who are here illegally actually came into this 
country legally. We need to create a system that will make sure that at 
the end of the day, we are enforcing our laws against those who are 
here illegally.
  How have we done that? We have done that in a variety of ways in this 
legislation. We increase the detention capacity to 27,500 beds daily. 
We add 1,000 new I.C.E. investigative personnel. We add 2,500 Customs 
and border protection workers. We require reimbursement to State and 
local communities that detain criminal aliens. We create a new employer 
verification system. We require 1,000 new worksite compliance 
personnel. I could go on and on with respect to how this legislation 
will create interior enforcement on immigration that will be effective.
  Finally, the third thing this legislation does is secure America's 
economic future. It secures America's economic future through the 
adoption of a program which Senator Craig and Senator Feinstein and 67 
of us have cosponsored, the AgJOBS Program, because we know that across 
America our farmers and ranchers are suffering because they have not 
had the labor they need. We also have included in this legislation the 
President's new temporary worker program. It is a program that will 
allow employers to match up with employees on a temporary basis, to 
create circularity with respect to those workers who will come into 
this country.
  Finally, it will create a realistic solution for America's 
undocumented workforce, the 12 million or so people who are here. That 
will be accomplished by requiring them to pay significant penalties and 
fees. We will make sure that as they move forward in the process, they 
also go to the back of the line so they don't get any advantage over 
those who enter the country legally.
  We will require them to return home prior to the time they apply for 
a green card. We will require them to learn English, and we will 
require them to remain crime free.
  Let me conclude by urging my colleagues to vote yes on the motion to 
proceed. The time is now for us to deal with the immigration reform 
issue which is so difficult and so contentious. At the end of the day, 
this bipartisan proposal which we have put on the table will allow us, 
first, to secure our borders. It will allow us to make sure we are 
enforcing our laws. Lastly, it will deal in a realistic and humane 
manner with the economic realities that face our businesses and workers 
in America today.
  I yield the floor.
  The PRESIDING OFFICER. The Senator from Massachusetts.
  Mr. KENNEDY. Madam President, I thank my friend and colleague from 
Colorado for his statement and his inspired leadership. We have worked 
on a number of different issues. I can recall the extraordinary 
leadership the Senator from Colorado provided last year when we debated 
comprehensive immigration reform. He brings to this issue a knowledge 
and understanding and perspective which is very special in terms of any 
issue, particularly this one. I have enjoyed working with him and look 
forward to continuing to do so. I hope our colleagues listened 
carefully to his message because he has demonstrated a thoughtfulness 
about this issue, as so many others have, a very strong, balanced 
judgment on these questions. I thank him, as always, for an excellent 
presentation and look forward to continuing to work closely with him as 
we move through the debate on whether we are going to take the 
opportunity to mend our broken immigration laws.
  I thank the Senator from Colorado.
  Madam President, today, we take up the solemn task of immigration 
reform--not just because we may but because we must.
  Our security is threatened in the post-9/11 world by borders out of 
control.
  Our values are tarnished when we allow 12 million human beings to 
live in the dark shadows of abuse as undocumented immigrants.
  Our economy is harmed when our immigration system fails to protect 
the American dream of a good job and decent wages.
  Our competitiveness in the global economy is at risk when our 
employers cannot find the able workers they need.
  Our immigration system is adrift and urgently needs an overhaul from 
top to bottom.
  The answers are not simple or easy. We cannot meet this challenge by 
simply building fences. We need comprehensive and commonsense solutions 
that meet the immigration needs of this century.
  We begin this debate mindful that immigration issues are always 
controversial. There are strong views on every side of this question 
because the issue goes to the heart of who we are as a nation and as an 
American people.
  But we should remember in this debate that we are writing the next 
chapter of American history. Immigrants made the America of today and 
will help make the America of the future.
  I am reminded of this awesome responsibility each time I gaze from 
the windows of my office in Boston. I can see the Golden Stairs from 
Boston Harbor where all eight of my great-grandparents set foot on this 
great land for the first time. They walked up to Boston's Immigration 
Hall on their way to a better life for themselves and their families.
  So many Americans can tell similar stories of ancestors who came from 
somewhere else. Some built our cities. Some toiled on our railroads. 
Some came in slavery--others to raise their families and live and 
worship in freedom.
  That immigrant spirit of limitless possibility animates America even 
today.
  Today, immigrants harvest our crops, care for our children, and own 
small businesses.
  They serve with pride in our armed forces--70,000 in all. At this 
very moment, many are risking their lives for America in Iraq and 
Afghanistan.
  Immigrants contribute to scientific discovery, to culture and the 
arts. They help make our economy the most vibrant one on the planet.
  Our strength, our diversity, our innovation, our music, our hard 
work, our love of country, our dedication to family, faith and 
community--these are the fruits of our immigrant heritage and the 
source of our national strength. They have made America the envy of the 
world.
  As President John F. Kennedy so eloquently wrote, the secret of 
America is that we are ``a nation of people with the fresh memory of 
old traditions who dared to explore new frontiers, people eager to 
build lives for themselves in a spacious society that did not restrict 
their freedom of choice and action.''
  Last week, we reached a historic agreement on a far reaching 
bipartisan immigration plan that lives up to this heritage. It involved 
hard negotiations between Democrats and Republicans, and it has the 
support of President Bush. Our plan is strong, realistic, and fair. It 
is a commonsense immigration policy for our times.
  It is tough at the border. It doubles our Border Patrol from 14,000 
agents to 28,000. It hires 800 new investigators and 800 antismuggling 
officers. It builds more fences and more detention centers, and 
provides more state-of-the-art, high-tech border enforcement equipment.
  It is tough on employers who hire illegal immigrants in defiance of 
the law. Today, it is too easy for an employer to hire an undocumented 
worker and pay them substandard wages in sweatshop conditions. That 
hurts American workers. It depresses wages. It allows employers to 
avoid paying payroll taxes.
  Our bill says no more worker abuse. Under our plan, employers must 
verify

[[Page 13278]]

that they hire only legal workers. If they do not, they can be fined up 
to $5,000 for a first offense and up to $75,000 for subsequent 
offenses. They can even go to jail.
  Our bill says that these tough enforcement measures must be in place 
first before we move forward with changes in future immigration. Future 
workers cannot come in until we have doubled the Border Patrol, built 
more fences, enhanced our equipment and technology along the border, 
and the employer verification system has begun. It is enforcement first 
and future workers later.
  Our plan also addresses the 12 million undocumented immigrants who 
are in America today. They have something to contribute. They are men 
and women of dignity. They work hard every day. They care for their 
families. They revitalize decaying neighborhoods. They sit in our pews 
on Sundays.
  We witnessed this recently in my own State of Massachusetts. An 
immigration raid in New Bedford disrupted the lives of scores of 
families who had laid down roots in the New Bedford community. Their 
children were in our schools, many of them born in America. They worked 
every day in a factory making equipment for our troops in Iraq.
  We are not going to round up these 12 million men, women and children 
and send them home. That is not the American way. So our plan allows 
these families to earn the privilege of remaining here and working 
legally.
  They have to pay a $5,000 fine over an 8-year period. They have to 
work and pay taxes. They have to learn English. They cannot be 
criminals or national security risks and they must obey our laws.
  The heads of family must make a trip home for a day or two sometime 
in the next 8 years to submit their applications for a green card at an 
American consulate just like other immigrants applying to come here. 
Then they are guaranteed the right to come right back to America right 
away to rejoin their families while they wait for their green card 
applications to be considered.
  Finally, they have to get in line for their green cards behind 
everyone else who has been waiting to come here legally.
  If they meet these tests, they will be welcomed into the sunshine of 
America. They will have no fear in coming forward and joining the 
American family. They will not be deported. Instead, we welcome them as 
our neighbors and as our friends and as future citizens of this great 
land.
  Our plan also continues to stress family reunification--a 
longstanding tradition under our immigration laws.
  Today, if you are trying to bring your relatives here legally, you 
might have to wait 22 years to get visas for them. As a result of this 
backlog, 4 million family members of American citizens and legal 
immigrants are on the waiting list to come here. Our plan expedites the 
reunion of these families and eliminates the waiting list in 8 years.
  In the future, our plan continues to make family reunion the highest 
priority. It says if you are an American citizen or a legal immigrant, 
you can bring your immediate family here to join you--your wife or 
husband, your minor children, and your parents.
  Of the 1 million green cards we issue each year, two-thirds will be 
dedicated to reuniting these families.
  But under our plan, more distant relatives will no longer have an 
automatic right to immigrate. They must first prove that they have the 
skills, education, and English abilities to contribute fully to our 
economic strength.
  Finally, our plan recognizes that our economy will continue to need 
hardworking people who are willing to come here for a few years. We 
need nurses and home health care aides. We need farm workers and 
janitors and hotel workers. We need computer programmers and scientists 
and engineers. So our program will allow them to come as guest workers 
under a program with strong labor laws that protect American jobs and 
wages.
  Our plan is a compromise. It involved give and take in the best 
traditions of the U.S. Senate. For each of us who crafted it, there are 
elements that we strongly support and elements we believe could be 
improved. No one believes this is a perfect bill.
  But after weeks of negotiations and years of debate, this bill 
accomplishes our core goals. It provides tough new enforcement at the 
border and the work site. It allows a realistic path to family security 
and eventual citizenship for millions of men, women, and children 
already here. And it provides a new system for allocating visas in the 
future that stresses family reunion and national economic needs.
  I don't usually quote Republican Presidents, but President Reagan 
understood the integral role that immigration plays in our country's 
future. As he said so eloquently in one of his last speeches before 
leaving the White House:

       We lead the world because, unique among nations, we draw 
     our people--our strength--from every country and every corner 
     of the world. And by doing so we continuously renew and 
     enrich our nation. While other countries cling to the stale 
     past, here in America we breathe new life into dreams. We 
     create the future, and the world follows us into tomorrow. 
     Thanks to each wave of new arrivals to this land of 
     opportunity, we're a nation forever young, forever bursting 
     with energy and new ideas, and always on the cutting edge, 
     always leading the world to the next frontier. This quality 
     is vital to our future as a nation. If we ever closed the 
     door to new Americans, our leadership in the world would soon 
     be lost.

  The world is watching to see how we respond to the current crisis. 
Let's not disappoint them.
  I urge my colleagues to vote to proceed to this debate and to support 
our new plan.
  Madam President, we have two of our colleagues on our side, I 
believe, who are on their way to the floor at the present time.
  I suggest the absence of a quorum.
  The PRESIDING OFFICER. The clerk will call the roll.
  The assistant legislative clerk proceeded to call the roll.
  Mr. KENNEDY. Madam President, I ask unanimous consent that the order 
for the quorum call be rescinded.
  The PRESIDING OFFICER. Without objection, it is so ordered.
  The Senator from South Carolina is recognized.
  Mr. GRAHAM. What is the status of the time allocation?
  The PRESIDING OFFICER. The time remaining on the Republican side is 
38 minutes 45 seconds.
  Mr. GRAHAM. Madam President, I ask unanimous consent to be recognized 
for 10 minutes, and afterwards I add to that Senator Martinez be 
recognized for 10 minutes.
  The PRESIDING OFFICER. Without objection, it is so ordered.
  The Senator from Massachusetts.
  Mr. KENNEDY. Madam President, I am delighted to hear the Senators. 
Would you like to have one speaker on our time and one on the 
Republican time?
  Mr. GRAHAM. Madam President, that would be fine. My 10 minutes will 
come from Senator Kennedy's time. Is that OK?
  Mr. KENNEDY. Is that agreeable?
  Mr. GRAHAM. Absolutely.
  Mr. KENNEDY. We have a couple Senators who are on their way over. I 
thank the Senator.
  The PRESIDING OFFICER. The Senator from South Carolina.
  Mr. GRAHAM. Madam President, I thank Senator Kennedy and Senator 
Martinez.
  I am in the fifth year of my first term, and we are finally dealing 
with an issue I think the country would love to have dealt with years 
ago. We are on the verge of doing something big and important. There 
are many reasons why you never do the big things and the hard things. 
That is why they stay unresolved.
  The country is running out of time on this particular issue to think 
of reasons why we won't solve this problem. Before 9/11, I would argue 
illegal immigration was a social and economic problem. After 9/11, I 
would argue it is a national security problem. We have millions of 
people in our country roaming around and we do not know who they are or 
what they are up to. The good news is most of them are here, 
unfortunately illegally, to work and to

[[Page 13279]]

try to make something of themselves and add value to our country.
  It is clear from Fort Dix, NJ--and maybe other things to come--some 
people are here illegally who are up to no good. They want to hurt us. 
The hijackers on 9/11--all of them came here. Most of them overstayed 
their visas. They did not come across the border. They had four or five 
fake drivers licences. It should be a wake-up call to this country we 
have people in our midst and we do not know who they are and there is 
no way to find out who they are.
  One thing every Member of the Senate, I hope, will agree upon is that 
if you wanted to, you could get a Social Security card made by midnight 
tonight somewhere that would pass for the real thing. When you drive by 
a construction site, and you see people working who are Hispanic or 
other folks you think are here from outside the country, I bet you 
every employer has documentation on file that appears to be legal. It 
is almost a nightmare for employers to comply with the current system.
  People tell me, enforce the law. If you can enforce this law, you are 
doing better than anybody since 1986. There is a reason this has 
happened. Why do 12 million people come here? Because we do not have a 
way to bring people here legally so they can work in a legal status. 
There are not enough Americans doing these jobs. Unemployment is below 
5 percent. It is illogical to say this illegal workforce has driven 
Americans out of work. We are at historically low unemployment. We need 
workers. But what we need more than anything else is we need to be able 
to secure our border, control who comes, on our terms, and have 
verifiable information about what status you are in. Because if we do 
not do that, then what happened on 9/11 is more likely to happen again.
  So there are many reasons to say no to this bill. There are many 
reasons to say no to someone else's proposal. But there is no good 
reason to not solve this problem. I do hope those who come down on the 
floor to amend this bill, to make it better, will lead us to a better 
solution. Those who come down on the floor with a goal of taking this 
bill down, I hope you feel some obligation to substitute it with 
something else that could pass.
  Democracy is a wonderful thing. When I was at my State convention, a 
lady told me: I don't like compromise. I said: Well, don't run for 
office. Because this is all about compromising. Isn't it, Senator 
Kennedy? It is. What I like about my country is that Republicans, 
Democrats, and Independents historically have been able to do the hard 
things to make us a better nation.
  I say to my friend from Florida, Senator Martinez, you have been a 
delight to work with.
  Breaking the law is something that has occurred in large proportion 
when it comes to immigration. The reason people have been breaking the 
law to this extent is the rest of us have not been that excited about 
enforcing it. I think the rest of us have sort of looked the other way 
and allowed the illegal immigration problem to grow because we have not 
asked the hard questions about: Where are all these people coming from? 
And what are they doing?
  There are lots of people, to their credit, who have been very upset 
about this issue for a very long time. I think many people in this 
country have gotten the benefit of this illegal workforce in terms of 
the labor and have sort of turned their eye, and now everybody is 
looking at it anew.
  To those who have been shouting from the rooftops that the 
immigration system is broken, you have done us a great service. To 
those who believe illegal immigration is a national security threat, an 
economic threat, and a social threat, you have done us a great service. 
But you are not going to do us a great service if you only shout about 
the problem. I want you to do more than tell me it is broken and it 
needs to be fixed. I want you to do more than just say: Lindsey Graham 
and Ken Salazar have it wrong. I want you to do what we have done. That 
is the only thing I ask of any of my colleagues: Sit down with a 
Democrat and Republican and try to fix it--and good luck because it is 
hard.
  You are right to come here and amend this bill and change it, and to 
take the floor and tell us why we have it wrong. I will listen. If we 
can fix it, we will. But do more than just tell me where I am wrong. Do 
more than just tell the American public we have to do something about 
this illegal immigration problem. Do more than just shout ``amnesty.'' 
If you think saying ``amnesty'' absolves you from having to participate 
in this debate, you are wrong. This debate is about the future of the 
United States when it comes to our national security, our employment 
needs, our ability to compete with the world for the labor force that 
exists. At the heart of this debate, it is about who we are as a 
people.
  Now, tomorrow, I am going to read a report issued by the Government 
about immigrants. Some of it is very tough. Let me give you a preview:

       As a class, the new immigrants are largely unskilled 
     laborers coming from countries where the highest wage is 
     small compared to the lowest wage in the United States. They 
     bring little money into the country and they send or take a 
     considerable part of their earnings out. More than 35 percent 
     are illiterate as compared with less than 3 percent of the 
     old immigrant class.
       The new immigration movement is very large. There are few 
     if any indications of its natural abatement. The new 
     immigration coming in in such large numbers has provoked a 
     widespread feeling of apprehension to its effect on the 
     economic and social welfare of the country. They usually live 
     in cooperative groups and crowd together. Consequently, they 
     have been able to save a greater part of their earnings, much 
     of which is sent or carried abroad. Moreover, there is a 
     strong tendency on the part of the unaccompanied men to 
     return to their native countries after a few years of labor 
     here.
       These groups have little or no contact with American life, 
     learn little of American institutions, and aside from the 
     wages earned, profit little by their stay in the country.
       Unquestionably, the hordes of immigrants that are coming 
     here have a good deal to do with crimes against women and 
     children. You will notice these particular crimes are done by 
     fellows who can't talk the English language.

  Now, this is a Government report about the effect of immigrants, the 
new immigrants, on our country. These quotes were taken in 1910 from 
the Dillingham Report, and one of the Senators on that commission was 
from South Carolina. It went on, and I will talk more about it, to talk 
about how these immigrants are ruining America. They live among 
themselves. They have disease. They won't learn our language. They 
commit crimes. They are a burden on society, and we need to do 
something about it. The report was begun in 1910, it was finally issued 
in 1913. The people they were talking about became the ``greatest 
generation.''
  Madam President, I yield the floor.
  The PRESIDING OFFICER. The Senator from Vermont is recognized.
  Mr. LEAHY. Madam President, as the Senate prepares to vote on the 
majority leader's motion to proceed to a comprehensive immigration 
reform bill, I continue to have concerns about the proposal announced 
last week. But I wish to commend Senator Kennedy for working so hard 
over the last several months to revive a bipartisan bill. He worked 
closely behind the scenes with Senator McCain for several months. When 
those efforts failed, he didn't give up. In fact, he was not deterred, 
as many who supported this process before went the other way. On the 
contrary, he spoke to a number of Republican Senators who had actively 
worked with us last year. When they wouldn't join him in a bipartisan 
effort, he continued on and joined the process Secretary Chertoff had 
begun with opponents of last year's bill. In extended discussions he 
and others have had, they have now come forward with a proposal. I 
commend Senator Kennedy's commitment and his efforts.
  I would also like to thank the majority leader. He had intended to 
set aside 2 full weeks this month for Senate consideration of 
comprehensive immigration reform. When the informal discussions were 
not completed on time, he gave those discussions more time. He was 
right that this issue warrants a significant commitment of the Senate's 
time, and I am glad to work with him to make sure that consideration is 
fair and comprehensive.

[[Page 13280]]

  Now, I am going to support the motion to proceed and the majority 
leader's cloture petition to go to the bill in order to allow the 
Senate the opportunity to work its will on the matter. Obviously, that 
doesn't presuppose how I will vote on the final product. Many of us 
have said that the bipartisan proposal, the Kennedy-Kyl-Chertoff 
proposal, represents a starting point for consideration.
  As the authors of the proposal know, this Senator from Vermont feels 
very strongly about the provisions that affect dairy workers and the 
circumstances of that important industry. But I also take a particular 
interest in the provisions that affect seasonal workers for the 
hundreds of Vermont businesses that require them, as well as the needs 
of our leading high-technology companies, many of which have 
significant operations in Vermont. The diverse coalition that put the 
AgJOBS bill together recognized that certain sectors of agriculture 
require special circumstances.
  It is really a shame that the AgJOBS legislation which Republicans 
and Democrats worked so hard to produce and which had gotten strong 
bipartisan agreement will not be fully respected. I believe that is a 
significant mistake and one I will consider in my final determination 
of how to vote. Notwithstanding that mistake, I will continue to work 
with the bill's authors to make sure our Nation's dairy farmers have a 
viable temporary worker program for the future.
  Beyond these provisions, I have a number of fundamental concerns I 
hope the Senate will address in the days and perhaps weeks ahead. In 
his radio address of May 12, President Bush restated that comprehensive 
reform must ``treat people with dignity.'' He said we must ``honor the 
great American tradition of the melting pot'' and that we must help 
immigrants ``embrace our common identity as Americans.'' I agree with 
President Bush. I believe part of that common heritage is our welcoming 
of immigrants and families.
  America is a land in which families matter, in which our values call 
for us to provide not just for ourselves at the cost of severing family 
ties but for our families. As the Statue of Liberty proclaims, America 
is a country that welcomes the poor and those yearning to breathe free, 
not just the well-educated and those who already speak English. It 
welcomed my grandparents who did not speak English and were not 
wealthy. We never know who among those immigrating to our shores will 
turn out to be the next great military leader, the next great 
entrepreneur, the next great inventor, the next to lift this Nation to 
greater heights.
  I want the bill we pass to recognize the best of America and our 
values and the best of our traditions as a land of immigrants, the land 
that brought my grandparents and my parents-in-law to this country. I 
also want it to be practical and workable.
  The so-called triggers in the White House proposal do two things. 
First, they appear to put off implementation of most immigration reform 
to the next President and the next Congress. Somehow, I don't 
understand that, why we can't face up to it ourselves. Second, they 
require absolute faith in the Department of Homeland Security and the 
Bush administration. Given the record of this administration, I see 
little basis for such faith.
  When this administration's representatives say to us that in the next 
18 months they will secure the borders and they will devise and 
implement identification verification measures and they will do that 
without fail, I remember the last 24 months in which they failed the 
victims of Hurricane Katrina and the Gulf States. I see an 
administration that has ignored immigration enforcement for years. I 
see an administration that does not deal realistically with the 
northern border. I see an administration that has all but destroyed the 
Justice Department and severely undermined its traditions as a neutral 
law enforcement agency above politics. I see an administration that 
denied global warming, disregarded science and, most egregiously, has 
disregarded the realities of its current disastrous engagement in Iraq.
  I say this because we are called upon to just put total faith in the 
administration. Some of us believe very much in the slogan President 
Reagan made up for the Russians when he said, ``Trust, but verify.'' In 
that regard, I am a Reaganite.
  I have urged the President to invest himself in the process and work 
with Congress. I did so on the first day of this Congress and at the 
one Senate hearing held on this matter in February. The path chosen by 
the administration was not one I recommended. Instead, the 
administration remained on the far right of the immigration debate and 
has pushed the bill and the debate in that direction.
  We have before us a measure that is the product of closed-door 
meetings between the administration and Republican Senators, which was 
then put to Democratic Senators as the framework from which any further 
negotiations could proceed. Senator Kennedy has done his best. He has 
made improvements in the proposal. He deserves our thanks. But whether 
the proposal is where it should be is what this debate will begin to 
determine.
  The substitute bill the administration endorses creates a temporary 
worker program with no opportunity to pursue the American dream. This 
bill risks the creation of a permanent, revolving underclass of workers 
with limited rights. A temporary worker program with no opportunity to 
share in the promise of America creates an incentive for overstays and 
risks creating a new population of undocumented individuals, just as we 
work hard to bring millions of people out of the shadows of our 
society. I also worry that the temporary worker program included in the 
bill doesn't effectively serve the needs of American employers. I am 
worried that it is unrealistic. This part of the proposal is opposed by 
a wide array of interests and constituencies, including organized 
labor, business, and advocates for immigrants. I hope we listen 
carefully to their concerns as we proceed.
  The substitute bill also erodes our traditional commitment to family 
unity by removing whole segments of family-based immigration. No longer 
will certain family members be allowed to be sponsored by their loved 
ones in the United States. Instead, proponents seek to create a 
supposedly merit-based green card system subject to a point system, 
where family ties are de-emphasized, and immediate contributions 
through education and job skills already attained are valued. I 
recognize that we may benefit in the short run from a more highly-
skilled foreign labor pool, but I have grave concerns about doing so at 
the expense of our traditional commitment to family unity and fostering 
strong families. Where are the family values here?
  The substitute bill also will require all Americans--not just foreign 
workers--to verify their citizenship before obtaining a job. Like the 
REAL ID Act that was forced on the American people outside the normal 
legislative process, this requirement is yet another example of the 
Administration's consistent denigration of Americans' rights, including 
the right to privacy. The Administration is telling all Americans that 
we can no longer trust you--that Big Brother will control hiring for 
all jobs in America. From America's country stores to our largest 
corporations, employers will now be de facto immigration officials, and 
potential employees will be presumed illegal until they prove 
themselves citizens. I hope we can reconsider this ill-conceived 
program, which cuts so hard against the presumptive decency and honesty 
of American citizens. America's democracy works because law-abiding 
Americans choose to comply with our laws, pay their taxes, and 
participate in our civil society.
  I am pleased that significant parts of AGJOBS have been included in 
this bill. The legalization provisions for currently undocumented farm 
workers will go a long way toward helping farmers and removing the 
cloud of fear from so many workers. I commend Senator Feinstein and 
Senator Craig for their work in this regard. But the bill also rejects 
parts of the monumental compromise reached between farm workers and 
agricultural employers in

[[Page 13281]]

the AGJOBS bill, which provides much needed reforms for America's 
farmers, dairy operators, and farm workers. I am extremely disappointed 
that American dairy farmers who want to hire future legal foreign 
workers end up losing out to the talking point that ``temporary means 
temporary.''
  The bill also neglects the real needs of the high-tech community, 
which has been vigilant in seeking reliable sources of high-skilled 
workers. Instead of adding sufficient H-1B visa numbers to allow 
companies to stay competitive and remain the world's leaders, the bill 
creates a green card system that doesn't truly address the technology 
industry's needs and removes hiring decisions from the company and 
places them with the Federal Government. It says: Trust us; we are from 
the Federal Government; we can make a better decision for you. Some of 
us are skeptical.
  But there are some good aspects of the bill. It incorporates the 
DREAM Act, a bill I have long supported. It has provisions that can 
move millions of undocumented people in this country on a path to 
citizenship, if not unrealistically delayed by the so-called triggers.
  Regrettably, it currently includes a provision to require immigrants 
to return to their home country before applying. In my view, that is 
unrealistic in many circumstances, and it is inflexibly harsh in 
others. Those who struggled to get here--who escaped oppressive and 
dysfunctional governments--should not be required to repeat that 
journey to share in the promise of America. This provision is driven by 
ideology, not by an American sense of fairness, and it should be 
revisited in our legislative process.
  I am also encouraged that we may be past the anti-immigrant 
opposition that stalled our efforts last year. I hope that we are past 
trying to make criminals out of undocumented immigrants. I hope that we 
are past trying to make criminals out of the clergy and advocates that 
try to help hard-working immigrants seeking a better life for their 
children. I hope we are past trying to build fences and walls around 
America and the American dream. I hope that we are past the anti-
immigrant rhetoric and the anti-Hispanic slurs that accompanied the 
debate and electioneering last year.
  We need to keep working to make sure our legislation is one that 
takes a commonsense, realistic approach to this situation. I will 
continue working to produce legislation that treats people with dignity 
and respects our great traditions as a welcoming nation. We have much 
work to do before this bill becomes worthy of the Senate and of our 
great history and tradition as a nation of immigrants, a nation that 
brought my grandparents and my great-great-grandparents and my parents-
in-law to this country.
  I will vote to support the Majority Leader's effort to proceed to 
debate on comprehensive immigration reform. I hope that as we move 
through amendments and debate, the Senate will work toward making this 
a better bill. We all know that had we insisted on taking up the 
Senate-passed bill of last year, we would not have the votes to 
proceed. Many who voted for last year's Senate's bill were prepared to 
abandon their support. The Majority Leader has demonstrated his good 
faith. I hope that Senators will join together and work together to 
produce a bill of which we can be proud and that will honor our parents 
and grandparents as well as our neighbors and grandchildren.
  Madam President, I yield the floor.
  Mr. CORNYN. Madam President, for over 3 months, I have engaged with a 
number of my colleagues and administration officials in an 
extraordinary series of meetings and discussions designed to reach 
bipartisan consensus for solutions to the many problems we face 
regarding our immigration system. I have done so in good faith and in 
keeping with my long held belief that we must have a comprehensive 
approach to immigration reform.
  I believe we should continue to try to move forward, generally, and 
that this problem is too important not to come up with an appropriate 
solution.
  That having been said--I am very concerned about the process that led 
to today. First, we have not undertaken the normal legislative pocess--
bypassing the Senate Judiciary Committee--leading to a public 
perception of nontransparency and distrust. Second, most of the Members 
of the Senate and their staff did not receive even a draft of the 
``final'' language until 2 a.m. on Saturday morning, just a little over 
48 hours ago. Third, I am told that the bill will not go to Senate 
legislative counsel--a significant departure from the normal course and 
a departure that makes it more difficult for legislative counsel to 
draft amendments due to lack of familiarity with the text. Finally, I 
am told the CBO cost estimate for the bill will not come out until 
Wednesday--only 2 days before the legislation may well receive a final 
vote depending on leadership decisions in the coming days.
  Moreover, I remain very concerned about the substance of the bill. 
For instance, my staff's preliminary review indicates that there are 
potentially some very problematic provisions in the language. In 
addition, because of the ``rush'' to produce language to meet the 
Monday deadline for a cloture vote, there are a number of technical 
drafting errors which also have a substantive effect and were being 
worked on as late as this afternoon.
  I have been open about my concerns with respect to interior 
enforcement--concerns that I still hold today. For example, the draft 
bill does not, to my knowledge, do enough to curb one of the core flaws 
that undermined the 1986 amnesty bill--that of unlimited judicial 
review. Indeed, just 2 weeks ago a judge ordered DHS to revisit whether 
a class of aliens should get the 1986 amnesty. It appears that if this 
bill passes, these aliens whose only real claim to participate in our 
system, will be able to take advantage of the new visa holder because 
they were able to delay through litigation. There are no limits on the 
number of motions to reopen the administrative process or times an 
alien can appeal to an article III court. If the American public is 
going to have confidence in this system, they need/to be assured there 
will be limits.
  In addition, I would note that the New York Times wrote that the 1986 
amnesty bill produced the largest immigration fraud in the history of 
the United States. President Clinton's INS general counsel testified 
that statutory restrictions on law enforcement's ability to use the 
information contained in amnesty applications impeded their ability to 
detect the fraud. To my knowledge, this bill continues to require 
confidentiality in certain cases where the application is denied.
  In the end, as much as I believe we should continue to work together 
to reach consensus on the critical issue of immigration reform--a 
matter of national import but that is particularly important to my home 
State of Texas--I cannot in good conscience agree to proceed to 
legislation which we anticipate replacing with language we received at 
2 a.m. on Saturday--without appropriate committee review--the text of 
which is hundreds of pages in length, the provisions of which are as 
complicated as any legislation we will take up and the impact of which 
will be felt, for better or worse, for generations to come.
  The PRESIDING OFFICER. The Senator from Florida is recognized.
  Mr. MARTINEZ. Madam President, I am delighted we have come to this 
point where, after much hard work and discussion for days and weeks and 
even months, we can present to the Senate for its consideration an 
immigration reform bill that I believe seeks to serve the needs of this 
country. I have had the pleasure and the privilege of working with a 
number of colleagues from this body during the last many weeks as we 
sought to put together something that would serve the country's 
interests.
  We have worked bipartisanly, with help from very dedicated Cabinet 
members, the Secretary of Homeland Security and the Secretary of 
Commerce, in a very comprehensive and dedicated way over days and days 
of discussions and difficult negotiations that were oftentimes 
emotional and always, I think, with the idea that we would do

[[Page 13282]]

something that was good for the country and that obviously was not 
going to be unanimously praised. Hearing the Senator from Vermont 
express misgivings about it and having earlier heard the Senator from 
Alabama equally express himself, each from different sides of the 
spectrum, it adds to the thought I have had that this is a bill which 
strikes it down the middle pretty well.
  Mr. DOMENICI. Madam President, will the Senator yield?
  Mr. MARTINEZ. Yes.
  Mr. DOMENICI. I wanted to ask unanimous consent that the time from 
now until the vote be allotted to the Senator from Florida and to the 
senior Senator from New Mexico and that there is no time remaining on 
the Democrat side, unless Senator Kennedy wants some of my time.
  Mr. KENNEDY. Madam President, the Senator is typically kind and 
courteous. There were one or two Senators who said they might need a 
moment or two, but they haven't been back in touch. If they are, I 
might ask for a minute or two from the Senator. I thank him for his 
thoughtfulness.
  Mr. DOMENICI. So I ask unanimous consent that the remaining time be 
allotted to the two of us and, if necessary, we can allot time to 
somebody else.
  The PRESIDING OFFICER. Without objection, it is so ordered.
  Mr. DOMENICI. I thank the Senator for yielding and thank him for all 
the hard work he has put into this bill.
  Mr. MARTINEZ. Madam President, it is a pleasure to be on the floor 
talking about this subject with the Senator from New Mexico. We did 
that last year, as I recall, as well, and the Senator has a rich 
immigrant history in his family that all of us in different ways share.
  I guess I should say, as the only person who has the privilege of 
serving in this body who is an immigrant and as truly someone who has 
come here having been born elsewhere, it is an incredible privilege for 
me to talk on this subject and have an opportunity to be a part of this 
debate.
  I really think it is a moment that brings us all to the roots of what 
our Nation is about. We understand that this is a nation of immigrants, 
a nation that through its history has had this tradition of welcoming 
people from all over the world, from all different lands, and manages 
in this magical way to bring people into the fullness of what it means 
to be an American. I have experienced it in my own life. I can speak 
about that for days. It has been that same kind of miracle I have seen 
happen to others.
  And I think that opportunity is still out there for many to enjoy, at 
the same time understanding we are a country that has a tradition of 
laws and they ought to be obeyed and observed. So it is in that tug 
between those two principles that are so ingrained in our country that 
we come to this very important moment and debate.
  I don't think there is any question that much has been said about 
this bill before people have had an opportunity to even know what is in 
it. I will say some things about it I think are important. I believe it 
is a product of a bipartisan compromise. Anytime you come together with 
people from different points of view, there are going to be those who 
will say it goes too much in one direction or the other.
  Here are some of the things it does do. It provides for border 
security. It will secure our borders in a way that will make Americans 
understand that the Government is serious about securing our borders. 
Before mentioning any of the other elements of this bill, I thank our 
colleague from Georgia, Senator Isakson, for the idea that we should 
have triggers in it. Before those other issues would be implemented, 
there will be an opportunity for a certification--not subjectively but 
objectively--with measurable results: How much fence has been built? 
How many border agents were hired? How many other promises were 
fulfilled toward the issue?
  One of the important ones is a tamperproof ID card that employees 
must have to present to employers so we can verify that they are 
working in America legally and that there are no phony Social Security 
numbers that can be used. That is a tamperproof, biometrically induced 
ID. We need to have those in place before the bill becomes a reality. 
Border security must and ought to be first and foremost. I have heard a 
lot of discussion from people who have not read the bill who suggest 
that 12 million illegal aliens are receiving a guaranteed, automatic 
right to remain in the United States. That is not the case. They are 
going to have an opportunity--after paying fines, after coming out of 
the shadows and registering, after background checks--to pay a fine for 
breaking the law and then go on probationary status. They will then 
have a card, which will become a visa, if they apply for it.
  It is a paradigm shift in what immigration is like in our country. It 
will require a new paradigm, which some find that, for a country that 
wants to be competitive in the 21st century, may be a wise thing. It is 
a merit-based system, without throwing aside the issue of family. It 
continues to involve family consideration, but it is not the only 
consideration.
  Illegal aliens who are here and wish to regularize their status 
should have an opportunity to become citizens, but it ought not be an 
automatic or direct path to citizenship. They will have to return to 
their home country under this bill and apply outside the country 
legally. It will be a long and difficult road, where they have to pay 
additional fines and other backgrounds checks will be done and, at the 
earliest, anybody who would be in this country illegally today, after 
having applied outside the country, it is going to be as lengthy as 13 
to 15 years before they can become citizens of this country.
  The people in line and the people who have done it the right way will 
be first to become citizens, ahead of those who have come illegally.
  As to the guest worker program, this is truly a guest worker program. 
When somebody outside the country comes here to go to school, they ask 
for a student visa and they understand they are coming for a period of 
time to study and go to school and then they are to return to their 
country. The guest worker program will be much the same thing. They 
will come for 2 years, understanding it is a 2-year visa. At the end of 
that 2 years, they have to return home. They are not coming to 
immigrate; they are coming to work. That is the understanding. It is 
the understanding before they ever come here. As they do, they will 
have an opportunity to work and taste the American dream, but they also 
have an obligation to return to their country. At the end of 6 years, 
or three work periods, they will return home and not be allowed to 
return again as a guest worker. They could have a path to citizenship, 
if they so chose to apply for regular immigrant status. They could be 
considered for that, but at the same time there would be no guarantees 
by the fact that they were here. They will have earned points by 
working here, and it is going to be a merit-based system. So they will 
have an opportunity to be considered for citizenship.
  This is a problem that begs an answer. There are many who would say 
this is amnesty, and therefore it should not even be considered. I 
suggest to them they ought to read the bill so they understand the 
details and how it is not amnesty. So to those who dismiss it as 
something that is no good and not workable, I suggest this: What is 
your answer? What do you suggest? What is your solution to this problem 
that for over 20 years has been vexing our country?
  It is time to grapple with this and tackle it. We know how to solve 
problems in the United States. We can solve this problem if we continue 
to work together in the spirit of this group of ours, which at times 
has been quite contentious but is also forging ahead to solve a 
problem. The spirit that group has had is the spirit that the Senate 
and the Congress needs to tackle this issue.
  I commend the President for having had the steadfast support on the 
proposal. He has been there with criticism even for members of our own 
party. He has been terrific in terms of sticking to

[[Page 13283]]

it, continuing to support it, having members of his Cabinet working 
with us day and night. We are at the threshold of a tremendous 
opportunity to do something truly good for the country. I thank the 
Senator from New Mexico for his interest. I will yield to him for his 
comment on this important legislation.
  The PRESIDING OFFICER (Ms. Stabenow). The Senator from New Mexico is 
recognized.
  Mr. DOMENICI. Madam President, I thank the Senator from Florida for 
his dedicated work on this bill and for his efforts heretofore a couple 
of years ago, when he worked very hard on this issue. We didn't have 
success, but maybe this bill, in spite of all the early talk against 
it, may succeed. Maybe with some amendments and some work it may become 
the new law with reference to illegal aliens for the United States of 
America. It is good enough for America. It is sufficiently clear for 
America. It will clear up the status of the 10 to 12 million 
undocumented aliens who live here. It will clear that problem up. 
Everywhere you look, we have let the problems of illegal aliens grow 
out of all proportions.
  It is a hard job to put a bill like this together. It is not easy. It 
is one of the most difficult jobs you can have to put legislation 
together to try to fix the last 15 years of letting our laws be 
ignored. We have not cared about them, letting the borders become 
porous, letting millions of people in illegally, which has caused all 
kinds of problems. But I can tell you, if you look at this bill 
carefully and you don't look at it with any preconceived ideas or 
ideology, but look at it and ask: What are the practical problems and 
what are the practical solutions here? I submit that it comes close to 
solving these problems in the very best way possible.
  I am sorry I already heard this morning Senators talking for a very 
long period of time about why they are against this bill. In the end, I 
listened and, after listening, I concluded that most of them had it 
wrong. I don't like to say that about my fellow Senators, but they had 
it wrong on the major issues, which they said made up their mind to be 
against the bill.
  Let me tell you what is going to happen under this bill. Before 
anything else in this bill is used or implemented, our borders must be 
secure. Let me repeat: whatever you hear from Senators that this bill 
is going to do, none of those provisions are going to be implemented 
unless and until we have secured the border. I don't know how we can 
say it any clearer. Senator Kennedy and Senator Jon Kyl from Arizona, 
the leaders on each side on this issue with Senator Specter, maybe what 
you are going to have to do is pull the text of this bill that secures 
the border and distribute it to the Senators so they will have it right 
in front of them to see that there is a border security part of this 
bill. It is there. It says, before you can implement the other 
provisions of this bill, the border will be made secure.
  It doesn't stop there. It tells you what a secure border is. It says 
18,000 Border Patrol agents must be hired. We are well on a path of 
getting them hired and trained. We can do this because we finally, for 
the last 3 years, we have been funding. We have been hiring thousands 
of them. But the bill says none of the bill's other provisions shall go 
into effect until the border is made secure.
  Then it says that secure means 370 miles of border fencing must be 
built. The Department of Homeland Security is committed to building 370 
miles by December 31, 2008. We are being honest. We didn't have to say 
that date. We didn't have to talk about it. But we cannot get fencing 
built any sooner. So that period of time is going to have to be used 
before we do other things in the bill. The bill cannot change anybody's 
status this year because those provisions are dormant until the border 
is made secure. They are dormant.
  It also says 200 miles of vehicular barriers must be in place. It 
says 70 radar and camera towers must be on the southern border. It says 
four unmanned aerial vehicles must be in operation we have to leave 
undocumented aliens apprehended on the border in detention facilities 
to wait until they are deported. Right now if you don't have a place 
for them, the judges release them. That has been one of our problems. 
The bill has 27,500 detention beds to end the ``catch and release 
program'', which we are aware of, those of us who represent the border. 
You have to have all that done before the bill becomes operative.
  So if any one of those is not done, it is just like not having an 
immigration reform bill; isn't that correct?
  Mr. MARTINEZ. That is right.
  Mr. DOMENICI. People say you are going to do immigration reform 
before the border is secured. How are we going to do that when the law 
says you throw the rest of the bill away until we have secured the 
border, and then it tells you what border security is? That has been 
worked on day and night. That has been done to try to calm so many 
thousands of people who have been indoctrinated to believe that the 
only thing we should do is make the border secure. So all they are 
going to ask you when you go home is: Did you secure the border, 
Senator? And, Senator, I heard from such and such that you didn't 
secure the border.
  Senators ought to carry around a piece of paper that has this border 
security provision on it, and you ought to take it out and read it to 
your constituents. They deserve the truth. They want the truth. We are 
not trying to do anything to hide what we did. We are trying to make 
sure they know it.
  I mentioned the name of a Senator from Arizona. He is not here, but 
Jon Kyl will be here tomorrow, so all the Americans out there will 
understand that Jon Kyl was one of the Republican who spent literally 
hundreds upon hundreds of hours as a dedicated leader on this issue, 
with Senator Kennedy on the other side. Senator Kennedy will 
acknowledge--if he hasn't already--that without Jon Kyl we could not 
have this proposal. People should know that Senator Kyl knew this was 
the chance of a lifetime for this great country. You could not get 
everything you wanted because there are other people playing. If you 
have 10 Senators working on it, and they are Democrats and Republicans 
and they each believe one thing or another, you have to come to a 
practical compromise.
  That is what it means to be a Senator who writes the law well. He 
works with his fellow Senators to come up with what they can use and do 
in a practical manner. That is what happened with this bill. It is 
practical, yet it is doable; and it is not only doable, it is right.
  If America accomplishes this bill in its totality, we will have made 
one of the largest changes for the better for the United States, and I 
don't think there is any doubt about that. It is tough, and it is going 
to be hard.
  I wish to talk about another provision, and then if Senator Specter 
is back and wants time, I will yield to him.
  This bill is difficult because everybody wants to know two things 
about this bill. There are other pieces, but there are two major 
questions. One is, did you secure the border, and I just talked about 
that because I am just like every other Senator. My telephone is 
ringing and most people want to know: Did you secure the border? Or 
they tell you that you did not secure the border and you have to be 
sure that you set them straight and they understand that you did secure 
the border.
  The money has been rolling in every year to secure the border, and it 
will be coming in again this year to get this work finished because if 
it can't get finished, the other provisions cannot be carried out. One 
of those other provisions is a brand new effort on the part of this 
great country to take 10 to 12 million aliens who live in our country, 
who live kind of as hideouts--they are everywhere and they are nowhere. 
Some live running from one place to another. Others have found a way 
with illegal cards to find their way into society. They are your 
neighbors with their kids going to school just like yours. We have 
decided, because the country has asked us to, that we have to do 
something about that 10 to 12 million people.
  For those who are interested, just ask your Senators about the bill 
as it is written, ask what we are going to do.

[[Page 13284]]

We are going to tell those illegal aliens who are here working: If you 
want to take advantage of this law, you have to come forward and turn 
yourself in, and the United States will then begin to work with you on 
a path toward giving you a document that you can carry with you, that 
you can use to obtain work, and you will be legal 4 years at a time.
  The bill also says after 8 years of that process, you will have an 
opportunity to choose, if you want, to move in the direction of 
becoming a citizen. But you still have at least 5 years to wait, and 
you must return to your home country and file your application. You 
must pay another fine. You must learn English. That is the first time 
we have had that provision. And you must learn U.S. civics.
  All of that must happen: 8 years of work, make a choice to pursue 
citizenship, wait at least 5 more years for a total of 13 years, and 
then if you can pass the citizenship test, you can become a citizen if 
you so choose. You can choose another route and you don't have to 
become a citizen or ultimately you can go home. There might be many 
people who will do that. We don't know.
  Before I turn the time over to Senator Specter--and I don't have 
time--but my friends, a couple of Senators have heard me talk before 
about my family, average people who got involved with the laws of our 
land as immigrants.
  Madam President, how much time would Senator Specter like?
  Mr. SPECTER. Six minutes.
  Mr. DOMENICI. It looks like we have 6 minutes. Is that what it is?
  Mr. SPECTER. I think there is 10 minutes.
  Mr. DOMENICI. I will take 4 minutes telling about my family, and 
Senator Specter can have the rest.
  Mr. MENENDEZ. Madam President, will the Senator from New Mexico yield 
for a unanimous consent request?
  Mr. DOMENICI. I will be pleased to yield.
  Mr. MENENDEZ. Madam President, I appreciate the distinguished Senator 
yielding. I ask unanimous consent that at the end of the time on the 
Republican side, I have 5 minutes to speak before the cloture vote.
  The PRESIDING OFFICER. Is there objection?
  Mr. DOMENICI. Reserving the right to object.
  The PRESIDING OFFICER. The Senator from New Mexico.
  Mr. DOMENICI. Madam President, I would normally not object, but I 
understand the leaders have set the time at 5:30 p.m. for the vote, and 
this request will extend the time. I don't think I have the authority 
to extend the time for a vote. Madam President, I ask Senator Kennedy, 
am I thinking right? I wasn't here when we agreed to take this up.
  The PRESIDING OFFICER. The Senator from Massachusetts.
  Mr. KENNEDY. Madam President, as I look at it, we have 11 minutes. 
The leaders had indicated to different Senators earlier that they 
wanted 5:30 p.m., and everyone is on notice for that to happen.
  Mr. DOMENICI. It is at 5:30 p.m. we are going to vote.
  Mr. KENNEDY. That is the time we were told.
  Mr. DOMENICI. I have to object.
  Mr. MENENDEZ. I say to the distinguished Senator that before his time 
expires, we are going to try to work it out with the two leaders to 
make sure it will be appropriate to ask consent again. So before the 
Senator's time expires, I will again ask unanimous consent.
  Mr. DOMENICI. That is fine. If the Senator from New Jersey has 
permission, he can come back and do that.
  The PRESIDING OFFICER. Objection is heard.
  Mr. DOMENICI. Madam President, I wish to tell about both my parents 
who came to this country as aliens, but I don't believe in 3 or 4 
minutes that I can do that adequately. So I will try to find another 
time in the next 5 or 6 days to tell you, Americans, who are listening, 
that you have a Senator whose parents were both born in a foreign 
country, whose parents came here as youngsters.
  It is a very interesting story because on my mother's side, she 
married my father after consultation with a lawyer about citizenship 
requirements. They were told that my mother was a citizen once they got 
married because my father was a citizen. He became a citizen because he 
served in the First World War. He came over right at the turn of the 
century and was drafted into the First World War.
  It turned out that the lawyer gave them wrong advice, and my mother 
was not a citizen. She raised her children here and lived here as a 
perfect model citizen.
  Then one day during the Second World War, she was arrested by several 
men who came in black cars to the back door while we four children were 
playing with marbles, or whatever we did. In came the people, the 
agents that work for the U.S., saying this lady was an illegal alien 
and she should be arrested.
  Of course, that was a shock, needless to say. My father came hurrying 
home from work and, guess what, the lawyer who had given him advice, my 
dad brought him along. He went over to his office and got him and said: 
You got us in this trouble, maybe you ought to come over and get us 
out.
  Sure enough, the lawyer was very upset. By evening, my poor mother 
was released because she had a good lawyer. A lot of people don't have 
that, and we know what happens to them under our laws.
  Next, I will tell you about my father and what happened to him. That 
will be the next episode, shall we say. For now, I yield the remainder 
of the time that we have to Senator Specter.
  The PRESIDING OFFICER. The Senator from Massachusetts.
  Mr. KENNEDY. Madam President, I have been told by the leadership that 
we can extend the debate by 10 minutes--5 minutes for the Senator from 
New Jersey and, if necessary, 5 minutes on the other side.
  The PRESIDING OFFICER. Without objection, it is so ordered. The 
Senator from Pennsylvania.
  Mr. SPECTER. Madam President, I am always fascinated by Senator 
Domenici's floor statements, about his immigrant parents. I will take 
just 60 seconds to talk about my immigrant parents.
  My mother came here when she was 6 years old in 1906. My father came 
in 1911 when he was 18. The Czar wanted to send my father to Siberia. 
He lived in Ukraine. That is where the Czar wanted to send all the 
young Jewish men, to Siberia. My father didn't want to go to Siberia 
because he heard it was cold there. He wanted to go to Kansas instead. 
It was a close call, and he got to Kansas where I was born.
  They didn't have enough money to hire a lawyer, but, fortunately, 
they didn't have any problems either. In Wichita, there weren't many 
big black cars, so the family lived happily ever after.
  On the issue before the Senate, I urge my colleagues to vote for 
cloture to proceed. We have been engaged for the better part of 3 
months in extraordinarily extensive and complicated negotiations. Every 
week from 4 to 6 p.m. on Tuesdays, Wednesdays, and Thursdays, we would 
meet. Those hours were extended. We are trying to tabulate the total 
number of hours we worked. So far, nobody can count that high. But we 
had 10 Senators working almost full time, and we came to a compromise 
and a combination, which is the way we work around here.
  I knew at the outset that working on immigration was going to be the 
third rail. The third rail is that rail that electrocutes you. We have 
long talked about Social Security as the third rail. Immigration is 
equally a third rail.
  There is no way to satisfy all facets of the political spectrum. We 
are accused on the right of amnesty. We have done everything we could 
to avoid that charge. I think we succeeded. Those undocumented 
immigrants will have to pay a fine, they will have to pay back taxes, 
they have to learn English, they have to fit into our culture, they 
have to hold jobs and be responsible, and go to the end of the line. 
They can't begin to qualify until 8 years have passed. It may be as 
long as 13 years which have passed. So it is not amnesty.
  Right now we have anarchy--anarchy. Those 12 million undocumented

[[Page 13285]]

immigrants are going to be in this country one way or another. We can't 
deport them. If we have a registration procedure, there is a chance 
that we will identify undocumented immigrants who have criminal records 
who ought to be deported. It is possible to deport a small number, but 
certainly not all 12 million.
  The new program will have detention space for 27,500 people, but we 
can't begin to detain 12 million people, to litigate the deportation 
process. It cannot be done. But that is not stopping those on the right 
from calling it amnesty.
  Those on the left think it is not sufficiently compassionate and 
object to the provisions on the touchback and think that there is not 
sufficient emphasis on family unification. If I had my druthers, many 
of those provisions would not be in the bill. But every time we find a 
point which is objected to, that point doubtless is in the bill in 
order to get two other considerations that somebody would like. It is 
an accommodation.
  The old saying, you never want to see legislation or sausage made 
doesn't apply here because what we have had to deal with wouldn't even 
qualify for sausage. It would be so unpalatable really. But what we are 
really facing here is a broken system. We have anarchy. We have borders 
which are porous. This bill will fix that with fencing, with barriers, 
with 6,000 additional Border Patrol to the 12,000 there now, and we 
will eliminate the magnet for jobs for illegal immigrants because now 
we have a way to identify who is legal and who is not legal.
  So we are in a position to impose tough sanctions on employers who 
hire those who are illegal. We have the need for a workforce for 
restaurants, for hotels, for landscapers, for farms. The Chamber of 
Commerce doesn't like the bill because it doesn't provide a sufficient 
workforce.
  We have tried to calculate a point system. We have to produce a lot 
of green cards for the undocumented immigrants, and we have tried to 
provide a point system which will give due regard for the low-skilled 
workers for the workforce and due regard for the high-skilled workers 
so we can be competitive. We have also given consideration to family 
ties. So we have done the best that could be done under these 
circumstances. If anybody has a better idea, we are open to 
suggestions. At least we should be able to proceed to have a debate and 
to proceed to the consideration of the bill. If people have amendments, 
the Senate will work its will.
  We have a fragile coalition, however, it ought to be noted. The 
coalition is fragile. If the basic tenets of the proposed legislation 
are not fulfilled, some will withdraw their support. At a bare minimum, 
after what has been done in a very forceful, good-faith effort by 
Democrats and Republicans working very hard, very sincerely, in good 
faith to come up with a bill, we have one pending. At a minimum, it 
ought to be considered.
  Whether it will be passed remains to be seen, but we have drawn from 
all segments of the political spectrum, and the consideration of this 
legislation ought to proceed. I urge my colleagues to vote cloture on 
the motion to proceed.
  Mr. KENNEDY. Madam President, I think we have 5 minutes remaining, 
and I yield the time to the Senator from New Jersey.
  The PRESIDING OFFICER. The Senator from New Jersey.
  Mr. MENENDEZ. I thank the Chair.
  Madam President, I don't support and can't embrace the underlying 
agreement that has been struck, but I do believe every Senator should 
vote for cloture, and I want to talk about that.
  If you vote ``yes'' on cloture, you are voting to give the Senate an 
opportunity to move forward with tough, smart, and comprehensive 
immigration reform that secures our Nation's borders. If you vote 
``no'' on cloture, you are voting to maintain the status quo of failed 
laws and a broken immigration system that is weak on enforcement, 
leaves our borders and our citizens unsecured, while also allowing for 
continued exploitation and human trafficking.
  If we have to wait a couple of years, and that is what will happen if 
we don't move this now, then States and municipalities will pass their 
own laws, which often violate equal protection laws, can discriminate 
against those who are U.S. citizens and lawful permanent residents, and 
create conflict within otherwise peaceful communities.
  By invoking cloture, we have the opportunity to strengthen the 
screening process at our consulates and points of entry, to better use 
technology along our borders, to make sure our agencies have both the 
necessary staff and the resources to do their jobs, thus effectively 
tightening our border security and workplace enforcement. By invoking 
cloture we have the opportunity to create an equal playing field and 
ensure that America's workers, wages, benefits, and health and safety 
standards are not undercut.
  Finally, by invoking cloture we have the opportunity to realize the 
economic realities in our society in which undocumented workers are 
doing the worst work that we cannot get many Americans to do, such as 
picking the fruits you had for breakfast, cleaning the hotel rooms for 
your stay, or plucking the chicken you had for dinner last night. We 
have an opportunity to vote to create a pathway to earned 
legalization--not amnesty but earned legalization that will take many 
years, considerable fines, payment of taxes, and a new English standard 
that will be required for permanent residency for the first time in our 
history.
  That is what is at stake in the vote this evening. It seems to me we 
have to move closer to once again controlling our borders, restoring 
the rule of law, and maintaining our long, proud history as a nation of 
immigrants.
  Last Thursday, the administration and a group of our colleagues came 
to an agreement that is often referred to as the ``grand bargain.'' 
Unfortunately, there are a number of details in this deal that, in my 
mind, create an unfair and impractical immigration system, undercutting 
the more sensible provisions. It is my intention, working with many 
colleagues, through a series of amendments, to help lead a charge to 
improve the deal by ultimately creating on the Senate floor tough, 
smart, and fair immigration reform.
  Very briefly, I believe the ``grand bargain'' has at least three 
serious flaws that must be fixed--an antifamily bias that clogs the 
system, a temporary worker program that creates a permanent working 
underclass, and exorbitant fines. If we don't improve the ``grand 
bargain,'' we could tear at the fabric of family reunification by 
eliminating four out of five family-based green card categories and 
capping green cards for parents at 40,000 a year. So much for family 
values not stopping at the Rio Grande River, as the President has 
talked about.
  If we don't improve the ``grand bargain,'' we would enact a truly 
temporary worker program that labor doesn't support and that bars most 
temporary workers from any path to permanent residence. Without such a 
chance, these workers would be driven underground and could be 
exploited while creating yet another underclass of undocumented 
workers.
  If we don't improve the ``grand bargain,'' we will require a family 
of four to pay up to $19,000 in fines and fees, which is far more 
punitive than what I have seen in the Federal criminal code for a 
variety of criminal offenses, such as the possession of firearms, 
possession of narcotics, and other things, and is impractical to luring 
those in the shadows to come forward and be identified and regularize 
their stays in this country.
  I believe what this country does on immigration represents the core 
of American values. How we treat this subject will either show the best 
or worst of America, and so while I am not supportive at this stage of 
the bipartisan comprehensive agreement that has been reached here, I 
urge Senators on both sides of the aisle to stand up, to vote for 
cloture, and to permit a comprehensive debate to start in the Senate 
and, hopefully, to work a bill

[[Page 13286]]

we can ultimately be proud of, that can secure the Nation, fuel our 
economy, and at the same time guarantee we bring millions of people out 
of the darkness and into the light.
  Madam President, I yield the floor.
  Mr. KENNEDY. Madam President, do we have 1 minute or so?
  The PRESIDING OFFICER. The majority's time has expired. The 
minority's time is 4 minutes.
  Mr. SPECTER. Madam President, I am advised Senator McConnell, our 
leader, is on his way to the floor, so he will be arriving shortly and 
we will use the balance of our time.
  Until he arrives, would either Senator on our side of the aisle care 
to make a statement?
  Well, if no one else will, I will use the time.
  Mr. KENNEDY. Madam President, will the Senator yield for a question? 
Perhaps we could mention, so all the Members understand, this then is 
the cloture vote on the motion to proceed, which will permit the Senate 
to begin the debate. So a vote in favor would permit at least the 
debate on this issue, which is of fundamental importance in terms of 
our country; am I correct?
  Mr. SPECTER. Madam President, the Senator from Massachusetts is 
correct, this is a cloture vote on the motion to proceed. This will 
enable the Senate to take up the bill.
  Again, I emphasize the very laborious efforts of more than a dozen 
Senators, meeting many hours, structuring what has occurred. It is easy 
for anyone to pick out a provision of this bill he or she would not 
like, but for every provision that is in the bill which the Senator 
might object to, that was probably placed there in consideration for 
other provisions in the bill which that Senator might agree to. There 
are many tradeoffs in coming to the conclusions which we have, so that 
when we proceed to the consideration of the bill, obviously any Senator 
may offer any amendment he or she chooses, but I would again comment 
that the coalition which has brought this bill to the floor is a very 
fragile coalition. If there are any changes on the fundamental so-
called ``grand bargain,'' a term originated by Senator Lindsey Graham, 
we are going to run the risk of losing Senators.
  The issues are enormous. This is an enormous issue facing the 
country. No domestic issue is of greater importance than this one, and 
we ought to do our utmost to find an answer to it because today, on 
immigration, we have anarchy. There are people complaining about 
amnesty, but the 12 million will be here no matter what we do. When we 
take a look at the specifics, it is not amnesty. There are fines to be 
paid, there are taxes to be paid, there is English to be learned, there 
is hard work to be done, and undocumented immigrants are going to have 
to earn their way to citizenship. They start at the end of the line 
with a minimum of 8 years and perhaps as long as 13 years.
  Madam President, I am told Senator McConnell is within sight. How 
much time remains, Madam President?
  The PRESIDING OFFICER. There is 1\1/2\ minutes remaining.
  Mr. SPECTER. Maybe we will head him off at the pass and tell him not 
to come.
  Senator McConnell is here, and he has 1\1/2\ minutes remaining, 
according to the timekeeper. He may have some leadership time, who 
knows.
  The PRESIDING OFFICER. The Republican leader.
  Mr. McCONNELL. Madam President, voting for cloture is a vote simply 
to begin the debate on this legislation. Normally, cloture is used to 
end debate, but here it is to begin.
  This is an extremely complicated, comprehensive piece of legislation, 
worked at on a bipartisan basis over a period of time. It needs to be 
finalized. I understand there was a modification to the substitute this 
afternoon, agreed to, I believe, by Senator Kennedy and Senator Kyl. We 
need to make sure whatever substitute is offered is, in fact, 
reflective of exactly where this legislation is.
  The other point I would make is we shouldn't be in a hurry to finish 
this bill. Last year, there were 35 immigration amendments. Twenty-
three amendments were voted on before cloture and 12 after cloture. 
This is, by any standard, at least a 2-week bill, and I think any 
effort to finish up this bill, one way or the other, this particular 
week would be unsuccessful. This is clearly a 2-week bill.
  This is an important subject. I think there is widespread discontent 
with the status quo in our country on the status of illegal 
immigration. It is time for the Senate to take this up and to give it 
adequate time for consideration. Hopefully, at the end of 2 weeks, we 
will be able to pass a bill on a broad bipartisan basis that improves 
the current situation.
  With that, Madam President, I yield the floor.


                             cloture motion

  The PRESIDING OFFICER. Under the previous order and pursuant to rule 
XXII, the clerk will report the motion to invoke cloture.
  The legislative clerk read as follows:

                             Cloture Motion

       We, the undersigned Senators, in accordance with the 
     provisions of rule XXII of the Standing Rules of the Senate, 
     hereby move to bring to a close debate on the motion to 
     proceed to Calendar No. 144, S. 1348, Comprehensive 
     Immigration Reform.
         Barbara Boxer, Harry Reid, Patrick Leahy, Carl Levin, 
           Jack Reed, Dick Durbin, Daniel K. Inouye, B.A. 
           Mikulski, Robert Menendez, Amy Klobuchar, Daniel K. 
           Akaka, Maria Cantwell, Jeff Bingaman, Ken Salazar, 
           Dianne Feinstein, Christopher Dodd, Edward Kennedy.

  The PRESIDING OFFICER. By unanimous consent, the mandatory quorum 
call has been waived. The question is, Is it the sense of the Senate 
that debate on the motion to proceed to S. 1348, a bill to provide for 
comprehensive immigration reform and for other purposes, shall be 
brought to a close?
  The yeas and nays are mandatory under the rule. The clerk will call 
the roll.
  The legislative clerk called the roll.
  Mr. DURBIN. I announce that the Senator from Delaware (Mr. Biden), 
the Senator from New York (Mrs. Clinton), the Senator from Connecticut 
(Mr. Dodd), the Senator from South Dakota (Mr. Johnson), the Senator 
from Massachusetts (Mr. Kerry), the Senator from Florida (Mr. Nelson), 
and the Senator from Illinois (Mr. Obama) are necessarily absent.
  Mr. LOTT. The following Senator is necessarily absent: the Senator 
from Arizona (Mr. McCain).
  The PRESIDING OFFICER (Mr. Whitehouse). Are there any other Senators 
in the Chamber desiring to vote?
  The yeas and nays resulted--yeas 69, nays 23, as follows:

                      [Rollcall Vote No. 173 Leg.]

                                YEAS--69

     Akaka
     Alexander
     Bayh
     Bennett
     Bingaman
     Bond
     Boxer
     Brown
     Brownback
     Burr
     Cantwell
     Cardin
     Carper
     Casey
     Chambliss
     Cochran
     Coleman
     Collins
     Conrad
     Craig
     Domenici
     Durbin
     Ensign
     Feingold
     Feinstein
     Graham
     Grassley
     Gregg
     Hagel
     Harkin
     Hatch
     Inouye
     Isakson
     Kennedy
     Klobuchar
     Kohl
     Kyl
     Landrieu
     Lautenberg
     Leahy
     Levin
     Lieberman
     Lincoln
     Lott
     Lugar
     Martinez
     McCaskill
     McConnell
     Menendez
     Mikulski
     Murkowski
     Murray
     Nelson (NE)
     Pryor
     Reed
     Reid
     Rockefeller
     Salazar
     Schumer
     Smith
     Snowe
     Specter
     Stabenow
     Stevens
     Voinovich
     Warner
     Webb
     Whitehouse
     Wyden

                                NAYS--23

     Allard
     Baucus
     Bunning
     Byrd
     Coburn
     Corker
     Cornyn
     Crapo
     DeMint
     Dole
     Dorgan
     Enzi
     Hutchison
     Inhofe
     Roberts
     Sanders
     Sessions
     Shelby
     Sununu
     Tester
     Thomas
     Thune
     Vitter

                             NOT VOTING--8

     Biden
     Clinton
     Dodd
     Johnson
     Kerry
     McCain
     Nelson (FL)
     Obama
  The PRESIDING OFFICER. On this vote, the yeas are 69, the nays are 
23. Three-fifths of the Senators duly chosen and sworn having voted in 
the affirmative, the motion is agreed to.
  The majority leader is recognized.
  Mr. REID. Mr. President, for all Senators, I have had a number of 
conversations with the distinguished Republican leader. I think it 
would be in the

[[Page 13287]]

best interests of the Senate--I am confident that Senator McConnell 
agrees because it was his suggestion--that we not try to finish this 
bill this week.
  I think we could, but I am afraid that conclusion wouldn't be 
anything that anyone wanted. There simply is not enough time on this 
massive, massively important piece of legislation to do it all on 
Tuesday, Wednesday, Thursday, and Friday.
  So, reluctantly; I kind of guard this schedule like my best friend, I 
think I am going to have to give my best friend 1 less week to do other 
things. When we come back the week after the Memorial Day break, we 
will spend that on immigration. I think the country deserves it. I 
think the Senate deserves it. We can come up with a better piece of 
legislation in that period of time.
  I do appreciate the suggestion of my distinguished Republican 
counterpart. Also, Mr. President, as I have said, this is an imperfect 
piece of legislation. But what in the world would anyone expect? This 
is a tremendously important piece of legislation. The immigration 
system in our country is broken. It needs fixing. We have an obligation 
to fix it, as hard as it is, because it is required that we take 
positions on issues we would rather not.
  So I would hope, during the next couple of weeks as we are working on 
this matter, that people will legislate in a bipartisan manner. No one 
is trying to get an advantage over anyone else with this piece of 
legislation. We have blame for both Democrats and Republicans.
  But whatever we do in the Senate is not the last word. After we 
complete the legislation, the House will have to do something on that. 
They will come up with what they feel is the best way to handle 
immigration. We will then go to conference.
  During these entire three steps, we will be working with the White 
House to try to come up with something to fix a broken system. Now, are 
we going fix it perfectly? Probably not. But it is something that is 
badly in need of fixing. We are going to make it much better at the end 
of the process than it is now.
  I yield the floor
  The PRESIDING OFFICER. The Republican leader.
  Mr. McCONNELL. Mr. President, I appreciate the remarks of the 
majority leader. It reflects the conversation he and I had earlier this 
afternoon, where I indicated there was a strong feeling on this side of 
the aisle that this was a 2-week bill.
  Last year when we took up this matter, there were 35 amendments voted 
on. Twenty-three amendments were voted on before cloture, 12 were voted 
on after cloture. Clearly, this is an extraordinarily complex and 
challenging piece of legislation.
  So I wish to thank my friend, the majority leader, for realizing this 
is not going to go anywhere unless we have a full and thorough debate 
of at least 2 weeks.
  I yield the floor.

                          ____________________